# Presentation: 051941

## 61st Interdepartmental Hurricane Conference 

**Hazard Risk Reduction through Stronger Partnerships and Alliances**
**Michael Buckley, Deputy Director**
**FEMA Mitigation Division**

## FEMA Responsibilities

**Recovery**
- Putting a community back together after a disaster

**Response**Saving life and property during and immediately after a disaster

**Preparedness**Getting people and equipment ready to quickly and effectively respond to a disaster before it happens

**Mitigation**
**Reducing the loss of life and property by lessening the impact of disasters**

**Notes:**
Mitigation is one of the cornerstones of emergency management, along with preparedness, response and recovery. The goal of mitigation is to reduce the loss of life and property by lessening the impact of disasters. Today, you’ll learn how FEMA’s Mitigation Division works toward that important goal.

## Mitigation Assessment Team Hurricane Katrina in the Gulf CoastObservations, Recommendations, and Technical AssistanceFEMA 549 / July 2006

**Notes:**
Sharing the results of our Katrina MAT activities with an overview, then flood impacts and then wind impacts. 

MAT is part of Building Science

MAT has been around for 25 years under different names performing building performance studies of Hurricanes, Tornadoes and manmade disasters like Murrah Federal Building and WTC

Hurricane Katrina is a catastrophic event, which will require massive rebuilding and require FEMA’s input to prevent this catastrophic damage from happening again
 Catastrophic damages from hurricanes are becoming more common (2004 Hurricane Season), which will require higher and better building practices to be studied and implemented
 Why is this important?

## Objectives of the MAT Program

- Conducts *forensic engineering analyses* to determine causes of structural failure and success
- Provides *recommendations* that communities, states and organizations/agencies can take to reduce future damages and protect lives and property in hazard areas
- Increase damage resistance through *improvements in construction codes and standards, designs, methods, and materials* used for both new construction and post-disaster repair and recovery

**Notes:**
Our objectives are basically to find out what worked and what didn’t.

We do this by examining the hazard impacts (water, wind), the built environment (residential, commercial and critical/essential facilities) the codes and regulations governing construction in the region and the conclusions and recommendation that will improve disaster resistance in the future.

When our recommendations are implemented we contribute to Mitigations Value to Society:

Creation of safer communities that reduce loss of life and property damage. 

Helping individuals to minimize post-flood disaster disruptions and recover more rapidly. 

Reducing the financial impact on individuals, communities, and society as a whole. 

## Deployed September-October 2005
Representatives of FEMA HQ and FEMA Regional Offices 
State and local officials 
Public- and private-sector experts: 
Team comprised of national experts in wind engineering, building codes, and coastal construction 
ICC, ASFPM, USACE, LSU, U.Miss, DOE, NIST, NC Sea Grant, NAHB
Experienced in mitigation solutions for coastal flood and wind events 
Assigned Task: study and document building performance; develop recommendations and reconstruction guidance 

- Deployed September-October 2005
- Representatives of FEMA HQ and FEMA Regional Offices
- State and local officials
- Public- and private-sector experts:
- Team comprised of national experts in wind engineering, building codes, and coastal construction
- ICC, ASFPM, USACE, LSU, U.Miss, DOE, NIST, NC Sea Grant, NAHB
- Experienced in mitigation solutions for coastal flood and wind events
- Assigned Task: study and document building performance; develop recommendations and reconstruction guidance

- MAT Composition and Duties

**Notes:**
Activities closely coordinating with Regions and JFOs

FEMA Representation

State/Local Participation 

Nationally Recognized Experts from Public and Private Sector

## MAT Coverage

**Notes:**
Wind speed measurements

Flood inundation and water levels
Aerial photography and remote sensing

Damage reports from PDA’s, locals and the news     Thousands of photos and observation of the Team

HMTAP Reports on HWM, Inland Wind, and Wind/waterline studies

All work brought together in a comprehensive way.

## Exit Presentations, AL, MS, LA (fall 2005)
Other presentations, fall 2005 to present
Summary Report (April 2006)
Full Report (July 2006)
Recovery Advisories (8)
FEMA 550, Foundations Guide (July 2006)
Other MAT-Related Activities
FEMA 499, 543, CCM training, published articles, Code Proposals

- Exit Presentations, AL, MS, LA (fall 2005)
- Other presentations, fall 2005 to present
- Summary Report (April 2006)
- Full Report (July 2006)
- Recovery Advisories (8)
- FEMA 550, Foundations Guide (July 2006)
- Other MAT-Related Activities
- FEMA 499, 543, CCM training, published articles, Code Proposals

- MAT Reports and Presentations

**Notes:**
Collectively over 50 Briefings and Presentations following Katrina

JFOs, TROs and HQ Mitigation

Town Hall Meetings, Homebuilder Associations, Building Official Associations, ASFPM chapters, MS Recovery Expo, New Orleans Homebuilders Summit, NHC, ASFPM,  Intl Bldrs Show, ICC Conference and many others

Our next briefing will be on Capitol Hill for Congressional staffers and Committee members

550 a parallel effort by members of the MAT. Seeing the poor foundation performance, questions from builders and designers on proper design and construction, lack of strong codes/enforcement, lack of knowledge how to use the newly adopted codes, and the tremendous engineering burden created by rebuilding hundreds of thousands of coastal homes.

550 fills a gap by providing a state of the art prescriptive pre-engineered foundation guide complete with engineering calculations, construction plans, cost estimates and decision tree on picking appropriate foundations. The guide is receiving lots of attention:

Articles in trade publications
Linkage to HMGP Reconstruction Grant Pilot Program
Recommended for use by MS Gov Haley Barbour during press conference at Recovery Expo
Adoption on the Guide into a new ICC Hurricane Resistant Residential Standard

CCM Training                 Using MAT to justify and defend our code proposals in the ICC

## Hurricane Katrina

**Hurricane Katrina**
**August 29, 2005**
**Made landfall near Buras, LA as a strong Category 3 storm**
***(Category 5 storm 18 hours prior to landfall)***
**Landfall near LA/MS border ****as Category 3 storm**

## Coastal MS is Subject to High Storm Surge

**Notes:**
NOAA’s SLOSH Model (used in Hurricane Evacuation Studies)

Probabilistic Runs calibrated with actual storm events
Available Galveston to Longboat Key

Atmospheric pressure variations
Wind transfer of motion to water
Wave breaking

## Storm Surge Levels

**Notes:**
Storm surge output from SLOSH for MS. Right side of output in pale yellow. This represents storm surge elevations of 8,10,12 feet. Roughly equivalent to BFEs (Jackson County). Some wave heights above that but for the most part we could consider it a design event. In the center (Harrison and Hancock) the purple areas indicate surge of 25 feet.

 Roughly 2x the BFEs on the maps. Clearly far in excess of design event.

## Storm Surge – Katrina:  The Wind Factor 

- Storm Surge – Katrina:  The Wind Factor

**IVAN**

- Building Code Wind Speed  Highest Design Winds in Continental U.S.

**150 mph**

## Wind Speeds

**With the exception of a small portion of the MS coast, wind speeds were generally less than a current design speeds (per ASCE 7)**

**Wind Swath contour plot (3-second gust at 10 meter elevation) based on HAZUS-MH wind field methodology (ARA)**

## CONCLUSIONS AND RECOMMENDATIONS: FLOOD

- CONCLUSIONS AND RECOMMENDATIONS: FLOOD

## Update Storm Surge Modeling which serves as the basis for FIRMs
Consider mapping flood hazards based on Future Conditions (sea level rise, subsidence, wetland loss, erosion), even if on optional DFIRM layers
Develop “What-If” Maps

- Update *Storm Surge Modeling* which serves as the basis for FIRMs
- Consider mapping flood hazards based on *Future Conditions* (sea level rise, subsidence, wetland loss, erosion), even if on optional DFIRM layers
- Develop *“What-If” Maps*

- Hazard ID Recommendations

## Flood Levels Above the BFE

**The consequences of coastal flooding exceeding BFEs are severe. . . **
**it doesn’t matter if the FIRMs are out of date . . . **
**or if a storm more severe than the 1% annual chance event occurs. . . **
**or both **

**Notes:**
What we have seen in the last couple of years is flood level in excess of the BFEs. Katrina extreme (2x bfe in many areas). Consequences are clear and that’s what we should try to avoid.

## Coastal MS

**Notes:**
Typical. Nothing left but foundations. Slab, piers, columns, stemwalls. 

## As an interim, use the Katrina Recovery Maps and construct to the ABFEs
Adopt V Zone Practices in Coastal A zones 

- As an interim, use the Katrina Recovery Maps and construct to the ABFEs
- Adopt V Zone Practices in Coastal A zones

- Design Recommendations

## Long-Duration Flood Impacts in New Orleans Area – Non-Structural Damage

- Long-Duration Flood Impacts in New Orleans Area – Non-Structural Damage

**Biological contamination:**
- 	1) High to extreme bacteria contamination levels
- 	2) Extensive fungal growth (mold) above the flood line
**Chemical contamination:**
- 	1) Some high heavy metals
- 	2) High petroleum hydrocarbon contamination levels (DROs)
- 	3) Frequent pesticide/chlordane contamination in older buildings
- 	4) No PCBs detected

## Recovery Advisories

**Notes:**
Guidance Released during development of the MAT Report

## Flood-Resistant Codes & Standards

*Adopt the latest model building codes*
- IBC, IRC, etc., NFPA 5000
- Use *ASCE 7-05* and *ASCE 24-05*
- Use NFPA 225* Manufactured Home Installation Standard*

**Notes:**
We also bring to the table existing codes 

## Select and design foundations based on Flood Recovery Maps and ABFEs, not FIRMs
Use Recommended Residential Construction for Gulf Coast: Building on Strong and Safe Foundations (FEMA 550, August 2006)
Elevate the bottom of the lowest horizontal structural member above the BFE in all coastal flood zones

- Select and design *foundations based on Flood Recovery Maps and ABFEs*, not FIRMs
- Use *Recommended Residential Construction for Gulf Coast: Building on Strong and Safe Foundations* (FEMA 550, August 2006)
- Elevate the *bottom of the lowest horizontal structural member above the BFE* in all coastal flood zones

- Foundation Recommendations

## Flood Resistant Design & Construction Guidance 

- Flood Resistant Design & Construction Guidance

## FEMA 550

**Case C - Driven Braced Timber Pile with Pile Cap**
- Concrete column above ground level
- Good for V, Coastal A, and A Zones
- Suitable for elevations up to 15 feet above grade
- Deep foundation

## CONCLUSIONS AND RECOMMENDATIONS: WIND

- CONCLUSIONS AND RECOMMENDATIONS: WIND

## Wind Conclusions -- Structural

- Continued problems with new residential construction
- -- Inadequate shear wall and diaphragm nailing, lack of metal framing connectors
- -- New residential construction in Florida relatively better

## Wind Conclusions – Envelope & Equip

- Poor performance of envelope and rooftop equipment – including new buildings
- -- Roof coverings
- -- Vinyl siding
- -- Soffits
- -- EIFS

**Notes:**
Had there not been structural issues there still would have been great damage due to envelope failures. Several installation deficiencies documented for shingle roofs (including new). Aggregrate roofs continue to be a problem. Edge flashing, coping and gutters and downspouts were damaged contributing to failures of the envelope. Significant building envelope vulnerabilities remain on buildings constructed before the 90s. 

## Wind Recommendations -- Code

**Adopt and enforce current codes and standards**
- Don't reduce provisions (speed, debris, aggregate)
- Specific recommendations given for improvements
- -- Research needed before implementation of some items

**Notes:**
The nation's model building codes have a great impact on the quality of construction and how structures will withstand the forces of nature. When disaster strikes, no matter where or how, building codes -- and local code officials -- are America's first line of defense against tragedy 
Structures built to strong codes still stand. People who live and work in them are still alive.

And communities that recognize the life -- or -- death consequences of building codes pick up the pieces and recover from disasters, while communities that ignore those codes struggle for months and even years.
Code enforcement always brings more gratitude after disaster strikes than it does before.

We can promise that stronger, better -- enforced building codes will promote prosperity, not endanger it. Businesses will not be shut down from storms. Jobs will be saved, and the economic and social fabric of the community will be secure. Enforcement is key. According to Best's Reviews, an insurance industry publication, experts estimate that losses from Hurricane Andrew could have been reduced by 30 to 40 percent if building codes had been strictly enforced. An additional study by the Factory Mutual Insurance Group indicates that damage to the majority of buildings inspected after Hurricane Andrew could have been reduced by 55 percent if building codes had been strictly enforced.

## Wind Recommendations – Design and  Construction 

- Wind Recommendations – Design and  Construction

- Specific recommendations for designers and contractors

**Notes:**
Mix of readily implementable and those requiring further study,

## 			      Recovery Advisories

- 			      Recovery Advisories

**Notes:**
LPS. National standards inadequate for wind resistance. 

Same for rooftop eq.

## Wind Recommendations -- Education

- Building owners
- A/E (incl. students)
- Contractors & manufacturers (trade schools)
- Building officials
- Current knowledge not being followed

**Notes:**
FEMA can’t do it alone. Code Organizations, Associations, Academics all play a role.

## Implementation of MAT Recommendations

- Shelters (Midwest Tornadoes MAT 1999)
- Fema 361 and 320 update
- HMGP Projects
- New ICC Shelter Standard
- Glazing Protection (Andrew MAT 1993)
- Improvements to Florida Building Code
- Improvements to ASCE 7 Wind Standard
- Improve Asphalt Shingle, Tile Roofing, & Edge Flashing (Charley & Ivan MATs)
- Expedited Changes made in Florida Building Code

## Implementation of MAT Recommendations

- Foundations (Katrina MAT)
- FEMA 550 Foundations Guide
- Adopted as Appendix in new ICC Hurricane Resistant Residential Standard
- Used by USACE Nonstructural Retrofitting Program
- Coastal A Hazard (Opal, Ivan & Katrina MATs)
- Updated ASCE 24-05 Flood Design Standard
- ASCE24-05 adopted by ICC
- MS Katrina ABFE maps (1 1⁄2 ft breaking wave line)
- Planned information layer on new MS Coast DFIRMs