Design and Construction 

Guidance for Breakaway 

Walls 

Below Elevated Buildings Located in Coastal High Hazard 

Areas in accordance with the National Flood Insurance 

Program

Technical Bulletin 9 / August 2008
Comments on the Technical Bulletins should be directed to:

Department of Homeland Security 

FEMA Mitigation Directorate

500 C Street, SW.

Washington, D.C. 20472

Technical Bulletin 9-08 replaces Technical Bulletin 9-99, Design and Construction Guidance for 

Breakaway Walls.

Cover photo: Post-Hurricane Ivan photo of the underside of an elevated V zone building. The breakaway walls underneath the building failed as intended during the hurricane.

Table of Contents

Introduction ..................................................................................................................................1

NFIP Regulations ..........................................................................................................................3

Flood Insurance Considerations.......................................................................................4

Building and Residential Code Considerations...............................................................5

Wave Loads on Building Elements ...................................................................................5

Performance of Breakaway Walls......................................................................................5

Options for Enclosing Areas Below Elevated Buildings ...............................................12

Prescriptive Design Method for Breakaway Walls..........................................................13

Simplified Design Method for Breakaway Walls ............................................................18

Performance-Based Design of Breakaway Walls.............................................................25

Impact of Breakaway Wall Provisions on Other Building Elements ............................26

Construction Materials ....................................................................................................27

Existing Buildings: Repairs, Remodeling, Additions, and Retrofitting ........................28

Recommendations for Coastal A Zones .........................................................................28

The NFIP .....................................................................................................................................30

NFIP Technical Bulletins ............................................................................................................30

Ordering Technical Bulletins .....................................................................................................31

Further Information ...................................................................................................................31

Glossary ........................................................................................................................................32
Technical Bulletin 9 – AUGUST 2008 1

Introduction 

Protecting buildings that are constructed in special flood hazard areas (SFHAs) from damage caused by flood forces is an important objective of the National Flood Insurance Program 

(NFIP). In support of this objective, the NFIP regulations include minimum building design 

criteria that apply to new construction, repair of substantially damaged buildings, and substantial improvements of existing buildings in SFHAs. The base flood is used to delineate SFHAs 

on Flood Insurance Rate Maps (FIRMs) prepared by the NFIP. The base flood is the flood that 

has a 1-percent chance of being equaled or exceeded in any given year (commonly called the 

“100-year” flood). Certain terms used in this Technical Bulletin are defined in the Glossary. 

Coastal waves and flooding can exert strong hydrodynamic 

forces on any building element that is exposed to the waves 

or flow of water. The NFIP requires that all new buildings, 

substantially damaged buildings, and substantially improved 

buildings in Coastal High Hazard Areas (Zones V, VE, and 

V1030) be elevated to or above the base flood elevation (BFE) 

on open foundations consisting of piles, posts, piers, or columns. These open foundations must be designed to allow 

waves and water moving at high velocity to flow beneath buildings. 

NFIP regulations require that the area below the lowest floor 

of elevated buildings either be free of obstructions or have 

any enclosed areas be constructed of non-supporting breakaway walls, open lattice-work, or insect screening. The walls, 

lattice, or screening are intended to collapse under wave loads 

without causing collapse, displacement, or other structural 

damage to the elevated building or the supporting foundation system (see Figure 1). Obstructions below an elevated building can significantly increase 

the potential for flood damage by increasing the surface area subject to wave impact and velocity flow. 

The NFIP regulations also specify that enclosures may be used only for parking of vehicles, 

building access, or storage; that all materials below the BFE, including materials used to construct enclosures, be flood damage-resistant materials; and that construction methods and 

practices minimize the potential for flood damage. 

Specific design requirements for breakaway walls are included in the NFIP regulations. Those 

parameters were the subject of research on breakaway walls performed for the Federal Emergency Management Agency (FEMA) and the National Science Foundation by North Carolina 

State University and Oregon State University (Tung et al., 1999). The research evaluated failure mechanisms that were demonstrated by full-scale, laboratory wave-tank tests of breakaway 

wall panels.

Under the NFIP, the “lowest floor” is the floor of the 

lowest enclosed area of a 

building. An unfin­ished or 

flood-resistant en­closure 

that is used solely for parking of vehicles, build­ing 

access, or stor­age is not 

the lowest floor, pro­vided 

the en­closure is built in 

compliance with applicable 

requirements.

As used by the NFIP, an 

“enclosure” is an area that 

is enclosed on all sides by 

walls. 
2 Technical Bulletin 9 – AUGUST 2008

This Technical Bulletin presents three design methods that are consistent with the NFIP 

regulations: a prescriptive design approach, a simplified design approach, and a performancebased design approach. Regardless of the approach used, breakaway walls must be designed 

and constructed to meet applicable building or residential codes, such as the International 

Building Code® (IBC®) or the International Residential Code® (IRC®), respectively. In many cases, 

design wind speeds will exceed the prescriptive limits specified in the governing residential 

code, which means designs must be in accordance with the governing building code or other 

approved standard. For example, the prescriptive design provisions of the 2006 IRC are not 

applicable to designs where 3-second gust design wind speeds exceed 100 mph; thus, residential structures in these areas must be designed in accordance with the IBC or other standard 

Figure 1. Area enclosed by breakaway walls below an elevated building
Technical Bulletin 9 – AUGUST 2008 3

referenced in the IRC (see IRC Section R301.2.1.1). The primary reference for wind and seismic loading in building and residential codes is Minimum Design Loads for Buildings and Other 

Structures (ASCE 7-05). 

The prescriptive design approach for breakaway walls requires the use of typical detailing, but 

allows the designer to design the elevated portion of the home and the foundation system 

without consideration of flood forces acting on the breakaway walls. This approach is only allowed for walls designed to have a safe loading resistance (also referred to as allowable load) 

of 20 pounds per square foot (psf) or less, as defined in this Technical Bulletin. 

The simplified design approach is permitted for walls designed to have a safe loading resistance of more than 20 psf. The approach requires the use of typical details that are similar 

to those used in the prescriptive method. Although special certification is required for these 

walls, the process is simplified since these walls are designed to minimize flood loads to the 

elevated structure and foundation system.

The performance-based design approach allows more detailing freedom for breakaway walls, 

but requires the designer to consider the combined effect of wind forces acting on the elevated portion of the structure, as well as wind and flood loads acting on the foundation system 

and the breakaway walls. 

NFIP Regulations 

The NFIP regulations for breakaway walls are codified in Title 44 of the Code of Federal Regulations, in Section 60.3(e)(4), which states that a community shall: 

“Provide that all new construction and substantial improvements in Zones V1-V30 and 

VE, and also Zone V if base flood elevation data is available on the community’s FIRM, 

are elevated on pilings and columns so that (i) the bottom of the lowest horizontal structural member of the lowest floor (excluding the pilings or columns) is elevated to or above 

the base flood level; and (ii) the pile or column foundation and structure attached thereto 

is anchored to resist flotation, collapse and lateral movement due to the effects of wind 

and water loads acting simultaneously on all building components. Water loading values shall be those associated with the base flood. Wind loading values used shall be those 

required by applicable State or local building standards. A registered professional engineer 

or architect shall develop or review the structural design specifications and plans for the 

construction, and shall certify that the design and methods of construction to be used are 

in accordance with accepted standards of practice for meeting the provisions of paragraphs 

(e)(4)(i) and (ii) of this section.”

Section 60.3(e)(5) further states that a community shall require: 

“...that all new construction and substantial improvements within Zones V1-V-30, VE, 

and V on the community’s FIRM have the space below the lowest floor either free of obstruction or constructed with non-supporting breakaway walls, open wood lattice-work, 
4 Technical Bulletin 9 – AUGUST 2008

or insect screening intended to collapse under wind and water loads without causing collapse, displacement, or other structural damage to the elevated portion of the building or 

supporting foundation system. For the purposes of this section, a breakaway wall shall 

have a design safe loading resistance of not less than 10 and no more than 20 pounds per 

square foot. Use of breakaway walls which exceed a design safe loading resistance of 20 

pounds per square foot (either by design or when so required by local or State codes) may 

be permitted only if a registered professional engineer or architect certifies that the designs 

proposed meet the following conditions: (i) Breakaway wall collapse shall result from a 

water load less than that which would occur during the base flood; and (ii) The elevated 

portion of the building and supporting foundation system shall not be subject to collapse, 

displacement, or other structural damage due to the effects of wind and water loads acting 

simultaneously on all building components (structural and non-structural). Water loading values used shall be those associated with the base flood. 

Wind loading values used shall be those required by applicable 

State or local building standards. Such enclosed space shall 

be useable solely for parking of vehicles, building access, or 

storage.” 

Proposals for substantial improvement of existing buildings in 

V zones, and proposals to repair those buildings that have sustained substantial damage, must comply with the requirements 

for new construction, including requirements for breakaway 

walls surrounding enclosed areas below the BFE. As part of 

issuing permits, community officials must review such proposals to determine whether they comply with the requirements. 

Further information on substantial improvement and substantial damage is found in Answers to Questions About Substantially 

Damaged Buildings (FEMA 213).

Flood Insurance Considerations

Elevated buildings in V zones that do not have obstructions or enclosures below the BFE are 

subject to less flood damage and thus lower rates are used to determine premiums for NFIP 

flood insurance. Some considerations affecting the rates and costs of NFIP flood insurance 

for elevated buildings in V zones include:

n The use of an enclosure with breakaway walls increases the premium for the entire 

building.

n An increase in the flood insurance premium resulting from the presence of an enclosure 

depends upon the area of the enclosure; substantially higher premiums are charged for 

enclosures that are 300 square feet or greater in area.

n The presence of garage doors below an elevated building, even if designed in accordance 

with this Technical Bulletin, may increase the flood insurance premium for the building.

NFIP flood insurance policies have limits on coverage of contents in enclosures under elevated buildings. Designers, contractors, and owners may wish to contact a qualified insurance 

agent or the NFIP for more information about policy coverage, coverage limits, and costs.

The NFIP Technical 

Bulletins provide guidance on the minimum 

requirements of the NFIP 

regulations. Community or 

State requirements that exceed those of the NFIP take 

precedence. Design professionals should contact the 

community to determine 

whether more restrictive 

provisions apply to the 

building or site in question. 

All other applicable requirements of the State or local 

building codes must also be 

met for buildings in all flood 

hazard areas.
Technical Bulletin 9 – AUGUST 2008 5

Building and Residential Code Considerations

The IBC requires that breakaway walls be designed and detailed in accordance with Flood Resistant Design and Construction (ASCE 24-05). ASCE 24-05 provides minimum requirements for 

flood-resistant design and construction of structures that are located in flood hazard areas. It 

requires breakaway walls and their connections to be in accordance with the flood loads specified in ASCE 7-05. In addition, ASCE 24-05 states that utilities and attendant equipment shall 

not be mounted on, pass through, or be located along breakaway walls. 

The IRC contains NFIP-consistent provisions and requires that the design of breakaway walls 

be certified by a registered design professional if wind loading values exceed 20 psf. As an alternative, the IRC permits the use of ASCE 24-05 for the design of breakaway walls. It should 

be noted that component and cladding values presented in the IRC exceed 20 psf in locations 

where the 3-second gust design wind speed equals or exceeds 110 mph. 

Wave Loads on Building Elements

Buildings in areas where conditions produce breaking waves are exposed to different loads 

and more severe loads than are imposed on buildings in flood hazard areas without waves. As 

a breaking wave passes a pile foundation or other element of an open foundation, the structure experiences an oscillating, high-velocity flow that peaks at the wave crest, just as the wave 

breaks. While drag forces are imposed on the relatively narrow vertical surfaces of open foundations as water moves under the building and past the foundation elements, most of the flow 

is relatively undisturbed, which makes open foundations an appropriate design in V zones. 

Water flows past piles under a building in much the same way rivers flow past piles and piers 

used to support bridges. 

The effect is quite different when a breaking wave hits a wider, relatively continuous, vertical surface, such as a wall. When the crest of a breaking wave impacts a wall, a pocket of air is 

trapped and compressed by the wave (see Figure 2). As the air pocket collapses, an exceedingly high-pressure burst (i.e., shock wave) impacts the wall, with the force centered around 

the stillwater level. Peak pressures from a 5-foot breaking wave can be 100 times higher than 

the safe loading resistance of 10 to 20 psf that is specified for breakaway walls in the NFIP regulations.

Performance of Breakaway Walls

FEMA’s Mitigation Assessment Team (MAT) Reports

FEMA deploys Mitigation Assessment Teams after some disasters to evaluate the performance 

of buildings and related infrastructure. MAT reports prepared after significant coastal storms 

have consistently concluded that breakaway wall systems perform as intended when they are 

designed and constructed to break away without damaging the elevated home and without 

becoming debris that can be trapped under buildings. Figure 3 shows an example of successful breakaway wall performance. MAT reports have also shown that some breakaway walls 

have been designed, constructed, or modified in ways that conflict with the NFIP regulations. 

In many cases, these non-compliant walls have led to unnecessary damage to, or collapse of, 

elevated structures. 
6 Technical Bulletin 9 – AUGUST 2008

The most commonly observed problems involving breakaway wall systems are caused by poor 

detailing practices, inappropriately constructed additions, or other construction features. 

Such practices do not comply with the letter or intent of the NFIP regulations, which require 

structures to be “constructed by methods and practices that minimize flood damages.” 

Figures 4 through 8 illustrate some of the non-compliant construction problems that have 

been illustrated in MAT reports:

Figure 2. Impact of 

a breaking wave on a 

vertical surface

Figure 3. Successful 

breakaway wall 

performance
Technical Bulletin 9 – AUGUST 2008 7

n Figure 4 shows access stairs supported by component walls that were not designed and 

detailed to break away from the structure. To be compliant with the NFIP’s free-of-obstruction requirement, stairs must be designed to either break away or to independently resist 

flood loads and to minimize transfer of loads to the structure (for more information, see 

Technical Bulletin 5, Free-of-Obstruction Requirements for Buildings Located in Coastal High Hazard Areas). It should also be noted that the backfilled concrete masonry unit walls and 

planter may also significantly alter the flow of water toward adjacent structures. 

n Figure 5 shows damage to exterior wall covering caused by lack of a horizontal separation 

joint between the breakaway wall and the wall above. 

n Figure 6 illustrates what is probably the most common problem that contributes to damage – poor detailing practices. In this example, utilities were attached to the breakaway 

wall. Similar damage is caused when utility lines are run through access holes, which then 

prevent the walls from breaking away. All utility components that must be installed below 

the elevated structure must be flood damage-resistant, designed for flood forces, and attached to permanent structural elements on the side opposite to the anticipated direction 

of flow and wave approach. 

n Figure 7 shows cross braces that were installed inside the breakaway walls and that could 

have prevented the breakaway walls from performing as designed. Braces, when required 

by the structural design, must be installed so as not to interfere with the intended performance of breakaway walls (see Technical Bulletin 5). 

n Figure 8 shows a detailing practice where the breakaway walls spanned across vertical foundation elements, unnecessarily strengthening the breakaway wall and preventing it from 

performing as intended.

Figure 4. Noncompliant stairs
8 Technical Bulletin 9 – AUGUST 2008

Figure 5. Noncompliant breakaway wall 

joint detailing

Figure 6. Noncompliant utilities 

attached to breakaway 

wall
Technical Bulletin 9 – AUGUST 2008 9

Figure 8. Noncompliant breakaway 

wall spanning across 

a vertical foundation 

element

Figure 7. Noncompliant bracing 

arrangement 
10 Technical Bulletin 9 – AUGUST 2008

Research on Breakaway Walls

Early analyses of breakaway walls assumed base flood conditions and oscillating (non-breaking) wave conditions. More recent research conducted by North Carolina State University and 

Oregon State University assumed two significant differences to better model coastal storm 

conditions: breaking waves and rising water levels with time (Tung et al., 1999). In addition, 

full-scale wall panels were tested in a wave tank to confirm the theoretical results. 

The research published in 1999 found that walls constructed using standard wood studs and 

structural wood sheathing failed after being hit by several breaking waves averaging less than 2 

feet in height. Those wave conditions usually occur early in coastal storms, when the stillwater 

depth is approximately 2 feet above ground. Although the forces acting on walls are significant, when the stillwater depth is shallow the forces are expected to act close to the ground, 

where much of the force is transferred into the ground or to the foundation near the ground. 

Since loads experienced prior to failure of a properly designed and constructed breakaway 

wall are applied near the bottom of the wall, forces transferred upward to the elevated building are minimized.

The tests on full-scale wall panels showed that wood-frame breakaway walls that are designed 

to resist extreme-wind conditions will fail reliably at the connection between the bottom plate 

of the wall and the floor (see Figure 9). The tests showed that the failure begins with bowing 

and gradual displacement of the bottom plate, or a similar secondary failure beginning with 

the central studs of the breakaway wall.

The testing determined another secondary failure mode that can occur if the bottom plate of 

the wall does not break away. In this case, with only a slight increase in applied load, failure will 

occur at the connection between the bottom plate of the wall and the bottom of each wall stud 

(see Figure 10). The researchers concluded that wood-framed breakaway walls will effectively 

fail before the excessive loads imposed by higher wave forces are transferred to the elevated 

building or foundation. 

While no similar research on the performance of steel stud-framed breakaway walls currently 

exists, these types of walls are expected to fail in a manner similar to wood-framed breakaway 

walls.

While no similar research has been undertaken to illustrate the performance of unreinforced 

masonry breakaway walls, these types of walls are expected to fail at the mortar joints between 

the unreinforced masonry units. Failure begins near the stillwater level where the pressure on 

the wall is assumed to be greatest (see Figure 11).
Technical Bulletin 9 – AUGUST 2008 11

Figure 9. Expected failure 

mode of wood-framed 

breakaway wall based on fullscale testing

Figure 10. Secondary failure 

mode of wood-framed 

breakaway wall as determined 

from full-scale testing
12 Technical Bulletin 9 – AUGUST 2008

Options for Enclosing Areas Below Elevated Buildings 

According to Section 60.3(e)(5) of the NFIP regulations, areas below elevated buildings in V 

zones may be enclosed in one of three ways: with non-supporting breakaway walls, open lattice-work, or insect screening. 

Breakaway Walls 

The NFIP regulations specify that buildings in V zones must resist the effects of wind and water loads acting simultaneously on all building components (where applicable, seismic loads 

must also be addressed). The NFIP regulations further specify that breakaway walls may be 

designed and constructed either:

n With a design safe loading resistance of not less than 10 and not more than 20 psf, in 

which case special certification by a registered design professional is not required. This approach is described below as the Prescriptive Design Method, or

n With a design safe loading resistance that exceeds 20 psf, provided a registered design 

professional certifies that the design meets certain conditions. To help the design professional certify these conditions, two approaches are described below: a Simplified Design 

Method and a Performance-Based Design Method.

Figure 11. Expected failure 

mode of unreinforced masonry 

breakaway wall
Technical Bulletin 9 – AUGUST 2008 13

Open Lattice-Work and Insect Screening

Open lattice-work and insect screening are not considered to be walls or obstructions as long 

as they will collapse under wind and water loads without causing damage to the building. 

To increase the likelihood of collapse as intended, it is recommended that the vertical framing members (such as 2x4s) on which the screen or lattice-work is mounted be spaced at least 

2 feet apart. Either metal or synthetic mesh insect screening is acceptable. Wood and plastic 

lattice is available in 4-foot x 8-foot sheets. The material used to fabricate the lattice should 

be no thicker than 1⁄2 inch, and the finished sheet should have an opening ratio of at least 40 

percent. (Although the regulations explicitly identify wood lattice, plastic lattice is acceptable 

provided it meets these recommendations.) 

Although not specified in the regulations, areas below elevated building may also be surrounded by plastic or wood shutters, slanted slats, or louvers (see Technical Bulletin 5). These 

materials must meet the following criteria:

n They must be cosmetic in nature,

n The material used for the slats must be no thicker than 1 inch, and 

n They must have an opening ratio of at least 40 percent.

Prescriptive Design Method for Breakaway Walls

Walls with a design safe loading resistance of not less than 10 psf and not more than 20 psf 

are considered breakaway walls and do not require special certification by a registered design 

professional. This statement has caused much confusion among developers, designers, and local officials. The intent is to allow flood loads acting on breakaway walls to be neglected when 

designing the foundation elements and the elevated structure itself. It was never the intent 

to allow breakaway walls to be designed for wind and seismic pressures that circumvent or 

lessen local building or residential code requirements. The previously cited research showed 

that breakaway walls with a design safe loading resistance of not more than 20 psf will fail at 

very low flood loads (i.e., 1.5-foot wave height). Thus, combining wave and wind loads on 

breakaway walls with maximum loads acting on an elevated structure and foundation system is 

unrealistic, and not required when using the prescriptive design method.

Breakaway walls that are built in accordance with the following prescriptive design method are 

considered to have a design safe loading resistance of approximately 20 psf. Modern building 

and residential codes used along the Gulf and Atlantic coasts likely will require unfactored 

design wind pressures that exceed 20 psf. Building codes and material standards no longer 

permit allowable stress increases for masonry, and thus prohibit unreinforced masonry breakaway walls to be designed using this method.

Applicability

The prescriptive design method for wood-framed and steel stud-framed breakaway walls does 

not require a design professional and is permitted to be used if all of the following conditions 

are satisfied: 
14 Technical Bulletin 9 – AUGUST 2008

1. Breakaway wall heights are between 6 and 9 feet, where piles, 

columns, or piers are spaced between 8 and 12 feet apart (the 

performance-based methods shall be used for situations that 

fall outside of these limitations).

2. The 3-second gust design wind speed does not exceed 110 

mph per ASCE 7-05 (see Figure 12) for all parts of breakaway 

walls, except those parts that are located within 4 feet of a 

building corner. Walls at building corners are subjected to 

substantially higher wind loads. 

3. The 3-second gust design wind speed does not exceed 100 

mph per ASCE 7-05 for those parts of breakaway walls that 

are located within 4 feet of a building corner.

4. The prescriptive design method is permitted for all Seismic Design Categories identified 

in ASCE 7-05.

5. Breakaway walls serving as backup for brick veneer or other material that may be damaged 

by excessive deflections shall not be designed using the prescriptive design method.

Design Methodology

Wood-framed breakaway walls and steel stud-framed breakaway walls shall be constructed in 

accordance with Figures 13 and 14, respectively. A note in Figure 13 refers to Table 1; Table 

1 is a set of tables presenting alternative nail requirements. A note in Figure 14 refers to Table 2, which presents requirements for screws. Interpolation for different pile spacings and 

wall heights is permitted when using these tables. Wood-framed walls shall be constructed using flood damage-resistant, No. 2 Grade Spruce-Pine-Fir or better grade/species (e.g., No. 2 

Southern Pine is better as defined by its higher allowable bending stress). 

The NFIP does not require 

installation of flood openings (vents) in breakaway 

walls under buildings in V 

zones. However, a number of State and local 

governments do require 

openings in breakaway 

walls. Check with the local 

building official or floodplain administrator for local 

requirements. Technical 

Bulletin 1 provides guidance on flood openings.
Technical Bulletin 9 – AUGUST 2008 15

Figure 12. 3-second gust design wind speed (ASCE 7-05, used with permission)
16 Technical Bulletin 9 – AUGUST 2008

Table 1a. Total required number of galvanized common nails (divided equally between top and bottom) for 

wood-framed breakaway wall configurations with 8-foot pile spacing

Breakaway Wall Height (feet) 6 7 8 9

Nail Size 8d 10d 8d 10d 8d 10d 8d 10d

Nails Required 18 12 22 14 24 16 28 18

Table 1b. Total required number of galvanized common nails (divided equally between top and bottom and 

evenly spaced) for wood-framed breakaway wall configurations with 10-foot pile spacing

Breakaway Wall Height (feet) 6 7 8 9

Nail Size 8d 10d 8d 10d 8d 10d 8d 10d

Nails Required 24 16 28 18 32 20 34 24

Table 1c. Total required number of galvanized common nails (divided equally between top and bottom and 

evenly spaced) for wood-framed breakaway wall configurations with 12-foot pile spacing

Breakaway Wall Height (feet) 6 7 8 9

Nail Size 8d 10d 8d 10d 8d 10d 8d 10d

Nails Required 28 18 32 22 38 24 42 28

Figure 13. Typical woodframed breakaway wall 

construction (prescriptive 

method)
Technical Bulletin 9 – AUGUST 2008 17

Figure 14. Typical steel 

stud-framed breakaway 

wall construction 

(prescriptive method)

Table 2. Total required number of No. 6 self tapping screws (divided equally between top and bottom and evenly 

spaced) conforming to SAE J78 with a Type II coating in accordance with ASTM B 633 for steel-stud framed 

breakaway wall configurations

Breakaway Wall Height (feet) 6 7 8 9

Screws Required for 8-foot Pile Spacing 22 26 30 32

Screws Required for 10-foot Pile Spacing 28 32 36 42

Screws Required for 12-foot Pile Spacing 32 38 44 50

Design Details 

All breakaway walls designed using the prescriptive design method shall be detailed in accordance with the following: 

1. Breakaway walls shall be designed to meet all applicable local requirements and building 

code requirements.

2. As shown in Figures 13 and 14, wood-framed and steel stud-framed breakaway wall panels 

shall not be attached to the pilings or other vertical foundation members. Only the tops 

and bottoms of wall panels shall be connected to permanent 2x4 nailer plates. High-capacity connectors such as bolts, lag screws, metal straps, or hurricane fasteners (e.g., clips or 

straps) shall not be used. 
18 Technical Bulletin 9 – AUGUST 2008

3. The exterior sheathing on breakaway wall panels shall neither overlap nor be attached to 

the vertical foundation members.

4. Breakaway wall sheathing and siding shall be discontinuous at elevated floor beams and 

joists; horizontal separation joints shall be provided to prevent damage to the sheathing 

or siding above the floor of the elevated building (see Figure 5). As shown in Figure 15, 

a watertight seal shall be provided for separation joints to prevent wind-driven rain water 

and sea spray from entering the building envelope. A similar vertical sealed joint may be 

needed in front of the piling. 

5. Utilities, including electrical wiring, breaker boxes, power meters, plumbing, conduits, and 

ventilation ducts, shall not be placed in or attached to breakaway wall panels. Building supply 

lines and other utility fixtures, such as light switches or electrical outlets, may be attached to 

the sheltered side of vertical foundation members as allowed by applicable building codes 

and floodplain management regulations (which generally require that utilities be elevated 

above the BFE). If utility lines must be routed into or out of an enclosure, one or more of 

the walls shall be constructed with a utility blockout (see Figures 13 and 14). Utility lines 

that pass through the blockout shall be independent of the walls and therefore will not be 

damaged if the wall panels break away. 

6. Breakaway wall panels shall be positioned such that, on failure, they do not collapse against 

cross-bracing or threaten other foundation components (for more information, see Technical Bulletin 5). 

7. Partial height breakaway wall systems are not permitted.

Prescriptive Design Method Example

Problem: Design a 10-foot wide by 9-foot tall wood-framed breakaway wall for a 3-second gust 

design wind speed of 110 mph. The Seismic Design Category is D, deflection of the wall is not 

important, and the wall is not within 4 feet of a building corner. Wood framing shall be constructed using flood damage-resistant No. 2 Grade Spruce-Pine-Fir 2x4s.

Solution: The problem description clearly allows the use of the prescriptive design method. 

Figure 13 shows that 2x4 studs at 24 inches on center (o.c.) shall be toe nailed to the top and 

bottom plates using two 16d nails. According to Table 1b, twenty-four 10d nails (12 top and 

12 bottom) can be used to connect the breakaway top and bottom plates to permanent 2x4 

nailer plates.

Simplified Design Method for Breakaway Walls

In most coastal areas, the adopted building codes include wind and/or seismic design requirements that exceed the 20 psf maximum limit allowed for breakaway walls that do not require 

certification by a registered design professional. NFIP performance criteria also allow for designs that meet these higher load requirements. Breakaway walls with allowable loads higher 

than 20 psf are permitted if a designer certifies that (1) the wall will collapse before base flood 

conditions are reached, and (2) the elevated building will not be damaged by combined wind 

and flood loads acting on all building components. 
Technical Bulletin 9 – AUGUST 2008 19

Breakaway walls designed in accordance with the simplified design method will have a design safe loading resistance that exceeds 20 psf. The previously cited research showed that 

wave loads on elevated structures are minimized if breakaway walls are designed to resist 

wind loads up to 55 psf. Therefore, walls designed using the simplified design method meet 

NFIP performance criteria. Stud, nail, and screw requirements presented in this section meet 

the stringent design conditions described below and may be relaxed as long as the designer 

Figure 15. Separation joint between sheathing and wall covering (e.g., stucco, siding) on house walls and 

breakaway walls
20 Technical Bulletin 9 – AUGUST 2008

ensures that the breakaway wall satisfies the governing code’s wind and/or seismic requirements. Future research and testing on walls with design wind pressures significantly exceeding 

55 psf may allow use of the simplified method where the 3-second gust design wind speed exceeds 140 mph.

Applicability

The simplified design method for wood-framed and steel stud-framed breakaway walls does 

not require a design professional and is permitted to be used if all of the following conditions 

are satisfied:

1. Breakaway wall heights are between 6 and 9 feet, where piles, columns or piers are spaced 

between 8 and 12 feet apart (the performance-based method shall be used for situations 

that fall outside of these limitations).

2. The 3-second gust design wind speed is between 110 and 140 mph (see Figure 12). 

3. The simplified design method is permitted for all Seismic Design Categories identified in 

ASCE 7-05.

4. Breakaway walls serving as backup for brick veneer or other 

material that may be damaged by excessive deflections shall 

not be designed using the simplified design method.

Design Methodology

Wood-framed walls shall be constructed using flood damageresistant Spruce-Pine-Fir or better species (e.g., Southern Pine 

is a better species as defined by its higher allowable bending 

stress). Wood-framed breakaway walls and steel stud-framed 

breakaway walls shall be constructed in accordance with Figures 16 and 17, respectively (notes in Figure 16 refer to Tables 

3 and 4, and notes in Figure 17 refer to Tables 5 and 6):

n Tables 3a, 3b, and 3c provide required stud spacing for 

Stud Grade, Construction Grade, and No. 2 Grade studs as 

a function of wind speed and wall height. Stud spacing values may not be interpolated (e.g., use 120-mph design wind 

speed if actual design wind speed is greater than 110 mph, 

but less than 120 mph).

n Tables 4a, 4b, 4c, and 4d provide the total required number 

of nails for different design wind speeds as a function of 

wall height and pile spacing (interpolation is allowed). 

n Table 5 provides required spacing for steel studs as a function of wind speed and wall height. Stud spacing values may 

not be interpolated (e.g., use 120-mph design wind speed if 

actual design wind speed is greater than 110 mph, but less 

than 120 mph).

Figure 16 shows that 3 – 

16d toe nails are required 

for all cases. Although 

no specific pattern for 

toe nailing is required in 

this Technical Bulletin, 

the National Design 

Specification for Wood 

Construction requires that 

edge distances, end distances, and spacings be 

sufficient to prevent splitting 

of the wood. If horizontal 

construction is preferred 

by the contractor, 1 – 16d 

nail installed end grain to 

the stud can be used with 

2 – 16d toe nails installed 

in alternate directions once 

the wall is placed vertically 

(see Figure 16). Likewise, 

2 – 40d nails installed end 

grain to the stud can be 

used so that the breakaway 

wall can be assembled horizontally and then nailed in 

place to the permanent top 

and bottom nailer plates. It 

should be noted that predrilling may be required in 

some cases.
Technical Bulletin 9 – AUGUST 2008 21

n Tables 6a, 6b, 6c, and 6d provide the required number of self tapping screws for different design wind speeds as a function of wall height and pile spacing (interpolation is 

allowed). 

Careful plan review and inspection by local jurisdictions is paramount when the simplified 

design method is used. Plan reviewers must ensure that the proper number and type of connectors are specified for both the top and the bottom plate connections, and inspectors should 

pay close attention that the installation complies with the approved plans. 

In areas where design wind speeds are less than or equal to 140 mph, inspectors may accept 

more top and bottom connectors than are specified in Table 4 (for wood studs) and Table 6 

(for steel studs). However, because breakaway walls fail near the ground, it is important that 

the number of bottom plate connectors not exceed one or two more than the number of connectors specified in Table 4d and Table 6d (regardless of design wind speed), or performance 

will be jeopardized.

Design Details 

Design details described for the prescriptive design method in the previous section apply for 

the simplified design method (see page 17).

Figure 16. Typical woodframed breakaway wall 

construction (simplified 

method)
22 Technical Bulletin 9 – AUGUST 2008

Table 3a. Required 2x4 stud spacing (inches) for different design wind speeds (mph) and wood-framed 

breakaway wall heights (Stud Grade)

Design Wind Speed per ASCE 7-05 110 120 130 140

Stud Spacing for 6-foot Wall Height 24 16 16 16

Stud Spacing for 7-foot Wall Height 16 16 12 12

Stud Spacing for 8-foot Wall Height 12 12 X X

Stud Spacing for 9-foot Wall Height X X X X

Table 3b. Required 2x4 stud spacing (inches) for different design wind speeds (mph) and wood-framed 

breakaway wall heights (Construction Grade)

Design Wind Speed per ASCE 7-05 110 120 130 140

Stud Spacing for 6-foot Wall Height 24 24 24 16

Stud Spacing for 7-foot Wall Height 24 16 16 16

Stud Spacing for 8-foot Wall Height 16 16 12 12

Stud Spacing for 9-foot Wall Height 12 12 X X

Table 3c. Required 2x4 stud spacing (inches) for different design wind speeds (mph) and wood-framed 

breakaway wall heights (No. 2 Grade)

Design Wind Speed per ASCE 7-05 110 120 130 140

Stud Spacing for 6-foot Wall Height 24 24 24 24

Stud Spacing for 7-foot Wall Height 24 24 16 16

Stud Spacing for 8-foot Wall Height 16 16 16 12

Stud Spacing for 9-foot Wall Height 16 12 12 X

Table 4a. Total required number of 10d galvanized common nails (divided equally between top and bottom and 

evenly spaced) for wood-framed breakaway wall configurations (design wind speed = 110 mph)

Breakaway Wall Height (feet) 6 7 8 9

Nails Required for 8-foot Pile Spacing 18 20 22 24

Nails Required for 10-foot Pile Spacing 20 24 28 32

Nails Required for 12-foot Pile Spacing 24 30 34 38

Table 4b. Total required number of 10d galvanized common nails (divided equally between top and bottom and 

evenly spaced) for wood-framed breakaway wall configurations (design wind speed = 120 mph)

Breakaway Wall Height (feet) 6 7 8 9

Nails Required for 8-foot Pile Spacing 20 22 26 30

Nails Required for 10-foot Pile Spacing 24 28 32 36

Nails Required for 12-foot Pile Spacing 30 34 38 44
Technical Bulletin 9 – AUGUST 2008 23

Table 4c. Total required number of 10d galvanized common nails (divided equally between top and bottom and 

evenly spaced) for wood-framed breakaway wall configurations (design wind speed = 130 mph)

Breakaway Wall Height (feet) 6 7 8 9

Nails Required for 8-foot Pile Spacing 22 26 30 34

Nails Required for 10-foot Pile Spacing 28 32 38 42

Nails Required for 12-foot Pile Spacing 34 40 44 50

Table 4d. Total required number of 10d galvanized common nails (divided equally between top and bottom and 

evenly spaced) for wood-framed breakaway wall configurations (design wind speed = 140 mph)

Breakaway Wall Height (feet) 6 7 8 9

Nails Required for 8-foot Pile Spacing 26 30 34 38

Nails Required for 10-foot Pile Spacing 32 38 42 48

Nails Required for 12-foot Pile Spacing 38 44 52 58

Table 5. Required 362S162-33 stud spacing for different design wind speeds (mph) and steel stud-framed 

breakaway wall heights

Design Wind Speed per ASCE 7-05 110 120 130 140

Stud Spacing for 6-foot Wall Height 24 24 24 24

Stud Spacing for 7-foot Wall Height 24 24 24 16

Stud Spacing for 8-foot Wall Height 24 16 16 12

Stud Spacing for 9-foot Wall Height 16 12 12 X

Figure 17. Typical steel 

stud-framed breakaway 

wall construction 

(simplified method)
24 Technical Bulletin 9 – AUGUST 2008

Table 6a. Total required number of No. 6 self tapping screws (divided equally between top and bottom and 

evenly spaced) conforming to SAE J78 with a Type II coating in accordance with ASTM B 633 for steel-stud 

framed breakaway wall configurations (design wind speed = 110 mph)

Breakaway Wall Height (feet) 6 7 8 9

Screws Required for 8-foot Pile Spacing 30 34 38 44

Screws Required for 10-foot Pile Spacing 36 42 48 54

Screws Required for 12-foot Pile Spacing 44 50 58 66

Table 6b. Total required number of No. 6 self tapping screws (divided equally between top and bottom and 

evenly spaced) conforming to SAE J78 with a Type II coating in accordance with ASTM B 633 for steel-stud 

framed breakaway wall configurations (design wind speed = 120 mph)

Breakaway Wall Height (feet) 6 7 8 9

Screws Required for 8-foot Pile Spacing 34 40 46 50

Screws Required for 10-foot Pile Spacing 42 50 56 64

Screws Required for 12-foot Pile Spacing 50 60 68 76

Table 6c. Total required number of No. 6 self tapping screws (divided equally between top and bottom and 

evenly spaced) conforming to SAE J78 with a Type II coating in accordance with ASTM B 633 for steel-stud 

framed breakaway wall configurations (design wind speed = 130 mph)

Breakaway Wall Height (feet) 6 7 8 9

Screws Required for 8-foot Pile Spacing 40 46 52 60

Screws Required for 10-foot Pile Spacing 50 58 66 74

Screws Required for 12-foot Pile Spacing 60 70 78 88

Table 6d. Total required number of No. 6 self tapping screws (divided equally between top and bottom and 

evenly spaced) conforming to SAE J78 with a Type II coating in accordance with ASTM B 633 for steel-stud 

framed breakaway wall configurations (design wind speed = 140 mph)

Breakaway Wall Height (feet) 6 7 8 9

Screws Required for 8-foot Pile Spacing 46 52 60 68

Screws Required for 10-foot Pile Spacing 56 66 76 84

Screws Required for 12- foot Pile Spacing 68 78 90 102

Simplified Design Method Example

Problem: Design a 10-foot wide by 9-foot tall wood-framed breakaway wall for a 3-second gust 

design wind speed of 130 mph. The Seismic Design Category is D, deflection of the wall is not 

important, and the wall is within 4 feet of a building corner. Wood framing shall be constructed using flood damage-resistant No. 2 Grade Spruce-Pine-Fir.

Solution: The problem description clearly allows the use of the simplified design method. 

According to Table 3c, 2x4 studs at 12 in. o.c. shall be toe nailed to breakaway 2x4 top and 

bottom plates using three 16d nails (from Figure 16). According to Table 4c, forty-two 10d 

nails (21 top and 21 bottom) shall be used to connect the breakaway top and bottom plates to 

permanent 2x4 nailer plates.
Technical Bulletin 9 – AUGUST 2008 25

As explained in the section on design methodology (see page 21), because this example is in 

an area with a design wind speed of less than or equal to 140 mph, additional top and bottom connectors may be used and accepted by inspectors. However, to allow the wall to break 

away as intended, inspectors should not accept more than the number of bottom connectors 

specified in Table 4d (plus an additional one or two). Therefore, while the solution indicated 

by Table 4c requires 21 nails at the top plate and 21 nails at the bottom plate, the maximum 

number that inspectors should accept for the bottom plate is 26 nails (per Table 4d, 24 nails 

plus not more than two extra nails).

Performance-Based Design of Breakaway Walls

Breakaway walls designed in accordance with the performance-based design method will normally have an allowable load of more than 20 psf. Flood loads (i.e., wave loads, hydrodynamic 

loads, and impact loads) on breakaway walls must be calculated and taken into account when 

designing the elevated structure and the foundation system. However, as described below, the 

designer is given slightly more freedom when detailing breakaway wall systems.

Applicability 

Performance-based design of breakaway walls must be performed by a design professional. 

This method is always permitted and these walls may be designed and constructed using wood 

studs, steel-studs, unreinforced masonry, or alternative materials. However, it is anticipated 

that performance-based design will be used primarily when the applicability criteria (e.g., 

taller walls, wider spans, higher design wind speeds) for the prescriptive and simplified design 

methods cannot be satisfied.

Design Methodology

Performance-based design of breakaway walls consists of designing the breakaway wall to resist 

the largest out-of-plane load of (a) the design wind pressure in accordance with ASCE 7-05, 

(b) the design seismic out-of-plane load in accordance with ASCE 7-05, or (c) 10 psf. Although 

breakaway walls are permitted by NFIP regulations, the effects of flood loads on these walls 

(and any other building components that are below the BFE) must be included in the design 

of the elevated structure and its foundation. It should be noted that more resistant breakaway 

walls increase the potential forces from debris impact loading on foundation elements and 

possibly on neighboring structures.

Design Details

All breakaway walls designed using the performance-based design method shall be detailed in 

accordance with the following: 

1. Breakaway walls shall be designed to meet all applicable local requirements and building 

code requirements.

2. Breakaway wall sheathing and siding shall be discontinuous at elevated floor beams and 

joists; horizontal separation joints shall be provided to prevent damage to the sheathing 

or siding above the floor of the elevated building (see Figure 5). As shown in Figure 15, 

a watertight seal shall be provided for separation joints to prevent wind-driven rain water 
26 Technical Bulletin 9 – AUGUST 2008

and sea spray from entering the building envelope. A similar vertical sealed joint may be 

needed in front of the piling. 

3. Utilities, including electrical wiring, breaker boxes, power meters, plumbing, conduits, and 

ventilation ducts, shall not be placed in or attached to breakaway wall panels. Building supply 

lines and other utility fixtures, such as light switches or electrical outlets, may be attached to 

the sheltered side of vertical foundation members as allowed by applicable building codes 

and floodplain management regulations (which generally require that utilities be elevated 

above the BFE). If utility lines must be routed into or out of an enclosure, one or more of 

the walls shall be constructed with a utility blockout (see Figures 13 and 14). Utility lines 

that pass through the blockout shall be independent of the walls and therefore will not be 

damaged if the wall panels break away. 

4. Breakaway wall panels shall be positioned such that, on failure, they do not collapse against 

cross-bracing or threaten other foundation components (for more information, see Technical Bulletin 5). 

5. Partial height breakaway wall systems are not permitted.

When using the performance-based design method, wood-framed and steel stud-framed 

breakaway wall panels may be attached to pilings or other vertical foundation members (i.e., 

all four sides of the panel may be attached) as accounted for in the design of the wall and 

foundation elements. 

Unreinforced, ungrouted hollow-cell masonry units may be attached to floor beams and to 

concrete or masonry vertical foundation members with standard mortars and minimum perimeter connections, as accounted for in the design of the wall and foundation elements. 

Continuous breakaway wall systems that span across pilings are not permitted.

Impact of Breakaway Wall Provisions on Other Building Elements 

The NFIP requirements for breakaway walls have direct impacts on the other building elements described in this section. 

Utilities

Utilities and attendant equipment shall not be mounted on, pass through, or be located along 

breakaway walls. Where utilities and attendant equipment (e.g., lighting circuits, switches, receptacles) are required to be installed below the BFE to address life safety and electric code 

requirements, they shall be mounted on the sheltered (i.e., landward) side of foundation 

members. If utility lines must be routed into or out of an enclosure, one or more of the walls 

shall be constructed with a utility blockout. Utility lines that pass through the blockout shall be 

independent of the walls and therefore will not be damaged if the wall panels break away.

Garage Doors

Garage doors installed in enclosures with breakaway walls are not exempt from the NFIP requirements to break away under flood conditions. Standard residential garage doors may be 
Technical Bulletin 9 – AUGUST 2008 27

considered breakaway panels and flood loads acting on these doors need not be considered. 

Although such doors have not been tested under wave loads, the IRC requires the use of doors 

that have been tested for wind loads. Experience has shown that these doors fail under very 

low wave loading that will not significantly affect the elevated home or foundation. Garage 

doors may be designed and detailed using the performance-based design provisions described 

in this Technical Bulletin.

Partial-Height Breakaway Wall Systems

Partial-height breakaway walls do not satisfy the NFIP requirements and are not permitted. 

These walls are constructed so that the bottom portion of the wall breaks away while the top 

portion of the wall (above the BFE but below the elevated structure) is strengthened to survive 

the design event. The NFIP regulations specifically state that walls below the lowest floor of an 

elevated building shall be breakaway walls. 

Exterior Façade 

Exterior façade treatments such as brick veneer, concrete plank, stucco, or other unreinforced nonstructural elements may be attached to breakaway walls provided the façade does 

not inhibit the breakaway characteristics of the walls. Façade connections shall be designed 

and detailed to meet building code requirements for wind and seismic loading. Horizontal 

separation joints shall be used at the elevated floor level to minimize damage to the elevated 

structure.

Interior Finishes

Enclosures below elevated buildings are allowed only for parking of vehicles, building access, 

or storage. Installing utility stub-outs (i.e., purposely placed utility access points for future 

connections) is inconsistent with the allowable uses of an unfinished enclosed area. Likewise, 

finishing the interior of enclosures with drywall or other finish materials is not permitted unless required to address life-safety and fire code requirements. An exception exists for steel 

stud-framed breakaway walls, where structural performance under wind loads requires continuous lateral bracing of both stud flanges. 

Construction Materials

The NFIP requires that construction materials used below the BFE be resistant to flood damage. Flood damage-resistant materials are those that are capable of withstanding direct and 

prolonged contact (i.e., at least 72 hours) with floodwaters without suffering significant damage (i.e., damage requiring more than reasonable cleanup or low-cost cosmetic repair, such 

as painting). More details are found in Technical Bulletin 2, Flood Damage-Resistant Materials 

Requirements for Buildings Located in Special Flood Hazard Areas. 

Unless other materials are required to address life safety and fire code requirements, flood 

damage-resistant materials shall be used for breakaway walls and wall panels, as outlined below.
28 Technical Bulletin 9 – AUGUST 2008

Wood-Frame Materials 

n All lumber shall be preservative-treated or decay-resistant (e.g., redwood, cedar, some 

oaks, and bald cypress).

n Exterior siding shall be exterior grade and no thicker than 1⁄2-inch plywood, APA 32/16 

rated sheathing or other equivalent sheathing material. 

n Wall studs shall be no larger than 2 inches x 4 inches (nominal dimensions) unless designed 

using the performance-based design provisions described in this Technical Bulletin. 

n Interior wall sheathing shall not be permitted. 

Metal Connectors

n Metal connectors shall be corrosion-resistant (see Technical Bulletin 8, Corrosion Protection 

for Metal Connectors in Coastal Areas).

Other Materials 

n Light-gauge steel framing, such as steel studs, shall be coated to resist corrosion.

n Stucco, Exterior Insulation Finishing System (EIFS) walls, and other lightweight exterior 

sheathing material may be applied, as long as a separation joint is provided where the 

material is attached at or near the bottom of the elevated floor beam or joists (see Figure 15). Insulation shall also be installed with a separation joint so that it does not hinder 

performance. 

n Foam sheathed walls may be designed and used as breakaway walls in accordance with the 

performance-based design provisions presented in this Technical Bulletin.

Existing Buildings: Repairs, Remodeling, Additions, and Retrofitting

Work that is determined to be substantial improvement of an existing building (including 

additions and repairs of substantial damage) must comply with the NFIP regulations and the 

entire structure must also be brought into compliance. Work on any existing building that was 

constructed in compliance with the NFIP requirements must comply with the requirements 

and not jeopardize the continued compliance of the building. Therefore, if enclosures are 

added below compliant buildings, breakaway walls shall be used. For more information about 

requirements for substantially improved and substantially damaged buildings, see Answers to 

Questions About Substantially Damaged Buildings (FEMA 213).

Recommendations for Coastal A Zones

FEMA’s MAT reports consistently show that buildings in areas mapped as AE zones and subject to tidal flooding, wave forces, scour, and debris impacts often are severely damaged. The 

landward boundary of the V zone is where the depth of water can no longer support a 3-foot 

breaking wave. A zones are mapped inland of the V zone to the landward boundary of the 

SFHA.

Figure 18 shows older homes located in a mapped AE zone that may have sustained significant 

flood damage caused by debris impact resulting from inundation and waves. Figure 19 shows 
Technical Bulletin 9 – AUGUST 2008 29

a structure in an AE zone that was elevated above the BFE, where the enclosure’s breakaway 

walls performed as intended, without damage to the elevated structure.

Portions of the AE zone areas where wave-related damage occurs have been determined to 

be areas where the depth of flooding can support waves between 1.5 and 3 feet high (which 

only requires approximately 2 feet of water depth). These areas are called Coastal A Zones 

(CAZs). Historically, CAZs have not been delineated on FIRMs, although some communities 

are delineating them or are requesting that the delineation be provided as an informational 

layer when FEMA produces new digital FIRMs. Where the informational layer is provided by 

FEMA on coastal map studies, the boundary line is called the Limit of Moderate Wave Action 

(LiMWA). 

FEMA strongly recommends that structures in CAZs be designed and constructed to meet 

V Zone requirements, including requirements for breakaway walls. However, the NFIP regulations also require flood openings in walls surrounding enclosures below elevated buildings in 

CAZs (see Technical Bulletin 1, Openings in Foundation Walls and Walls of Enclosures). Breakaway 

walls used in CAZs must have flood openings that allow for the automatic entry and exit of 

floodwaters to minimize damage caused by hydrostatic loads. Openings also function during 

smaller storms or if anticipated wave loading does not occur with the base flood. 

Figure 18. Homes in 

AE zone devastated by 

wave forces and debris
30 Technical Bulletin 9 – AUGUST 2008

The NFIP

The U.S. Congress established the NFIP with the passage of the National Flood Insurance 

Act of 1968. The NFIP is a Federal program enabling property owners in participating communities to purchase insurance as protection against flood losses, in exchange for State and 

community floodplain management regulations that reduce future flood damages. Participation in the NFIP is based on an agreement between communities and the Federal Government. 

If a community adopts and enforces adequate floodplain management regulations, FEMA will 

make flood insurance available within the community. 

Title 44 of the U.S. Code of Federal Regulations contains the NFIP criteria for floodplain management, including design and construction standards for new and substantially improved 

buildings located in SFHAs identified on the NFIP’s FIRMs. FEMA encourages communities 

to adopt floodplain management regulations that exceed the minimum NFIP criteria. As an 

insurance alternative to disaster assistance, the NFIP reduces the escalating costs of repairing 

damage to buildings and their contents caused by floods.

NFIP Technical Bulletins 

This is one of a series of Technical Bulletins that FEMA has produced to provide guidance 

concern­ing the building performance requirements of the NFIP. These requirements are contained in Title 44 of the U.S. Code of Federal Regulations at Section 60.3. The bulletins are 

intended for use by State and local officials responsible for interpreting and enforcing the 

requirements in their floodplain management regulations and building codes, and by members of the development community, such as design professionals and builders. New bulletins, 

as well as updates of existing bulletins, are issued periodically, as necessary. The bulletins do 

not create regulations; rather, they provide specific guidance for complying with the requirements of existing NFIP regulations. Users of the Technical Bulletins who need additional 

Figure 19. Structure 

elevated above BFE 

in AE zone showing 

successful response of 

breakaway walls
Technical Bulletin 9 – AUGUST 2008 31

guidance should contact their NFIP State Coordinator or the appropriate FEMA regional office. 

FEMA’s User’s Guide to Technical Bulle­tins (http://www.fema.gov/pdf/fima/guide01.pdf) lists 

the bulletins issued to date.

Ordering Technical Bulletins 

The quickest and easiest way to acquire copies of FEMA’s Technical Bulletins is to download them from the FEMA website (http://www.fema.gov/plan/prevent/floodplain/techbul.

shtm).

Technical Bulletins also may be ordered free of charge from the FEMA Publications Warehouse by calling 1-800-480-2520, or by faxing a request to 301-362-5355, Monday through 

Friday between 8 a.m. and 5 p.m. EST. Please provide the FEMA publication number, title, 

and quantity of each publication requested, along with your name, address, zip code, and daytime telephone number. Written requests may be also be submitted by mail to the following 

address:

FEMA Publications

P.O. Box 2012

Jessup, MD 20794

Further Information

The following sources provide further information concerning breakaway walls below elevated coastal buildings.

American Forest & Paper Association/American Wood Council, 2005, NDS: National Design 

Specification for Wood Construction.

American Society of Civil Engineers, Structural Engineering Institute. 2005. Flood Resistant 

Design and Construction, ASCE 24-05.

American Society of Civil Engineers, Structural Engineering Institute. 2005. Minimum Design 

Loads for Buildings and Other Structures, ASCE 7-05.

FEMA. 1991. Answers to Questions About Substantially Damaged Buildings. FEMA 213. 

FEMA. 2000. Coastal Construction Manual, FEMA 55CD (3rd edition).

FEMA. 2005. FEMA 499: Home Builder’s Guide to Coastal Construction Technical Fact Sheet Series.

FEMA. 2008. NFIP Technical Bulletin 1-08. Openings in Foundation Walls and Walls of Enclosures.
32 Technical Bulletin 9 – AUGUST 2008

FEMA. 2008. NFIP Technical Bulletin 2-08. Flood Damage-Resistant Materials Requirements.

FEMA. 2008. NFIP Technical Bulletin 5-08. Free-of-Obstruction Requirements.

FEMA. 1996. NFIP Technical Bulletin 8-96. Corrosion Protection for Metal Connectors in Coastal 

Areas.

International Code Council, Inc., 2006. International Building Code®, IBC 2006.

International Code Council, Inc., 2006. International Residential Code®, IRC 2006.

Rogers, Spencer M. 1991. Foundations and Breakaway Walls of Small Coastal Buildings in Hurricane Hugo. Proceedings of Coastal Zone ‘91. American Society of Civil Engineers. New York, 

NY. 

Tung, C.C.; Bohumil Kasal; Spencer M. Rogers, Jr.; S.C. Yeh. 1999. Behavior of Breakaway Wall 

Subjected to Wave Forces: Analytical and Experimental Studies. North Carolina Sea Grant, North 

Carolina State University. Raleigh, NC.

Glossary

Base flood — The flood having a 1- percent chance of being equaled or exceeded in any given 

year; commonly referred to as the “100-year flood.” The base flood is the national standard 

used by the NFIP and all Federal agencies for the purposes of requiring the purchase of flood 

insurance and regulating new development. 

Base flood elevation (BFE) — The height of the base (1- percent annual chance or 100-year) 

flood in relation to the specified datum on the community's flood hazard map, usually the 

National Geodetic Vertical Datum of 1929 (NGVD), or the North American Vertical Datum 

of 1988 (NAVD). 

Breakaway wall — A wall that is not part of the structural support of the building and is intended through its design and construction to collapse under specified lateral loading forces, 

without causing damage to the elevated portion of the building or supporting foundation system. 

Coastal A Zone — An area within a special flood hazard area, landward of a V zone or landward of an open coast without mapped V zones; in a Coastal A Zone, the principal source of 

flooding must be astronomical tides, storm surges, seiches, or tsunamis, not riverine flooding. 

During the base flood conditions, the potential for wave heights shall be greater than or equal 

to 1.5 feet. Coastal A Zones are not normally designated on FIRMs.

Coastal High Hazard Area — An area of special flood hazard extending from offshore to the 

inland limit of a primary frontal dune along an open coast and any other area subject to highvelocity wave action from storms or seismic sources. 
Technical Bulletin 9 – AUGUST 2008 33

Detailing — The design practice of using structural and architectural drawings and specifications to arrange, configure, and connect structural and nonstructural building components 

of a building system. Design details convey to the contractor exactly how the structural and 

nonstructural components of a building should be built.

Federal Emergency Management Agency (FEMA) — The Federal agency that, in addition to 

carrying out other activities, administers the National Flood Insurance Program.

Flood Insurance Rate Map (FIRM) — The official map of a community on which FEMA has 

delineated both the Special Flood Hazard Areas (SFHAs) and the risk premium zones applicable to the community.

Hydrodynamic load — The load imposed on an immersed object, such as a foundation 

element or enclosure wall, by water flowing against and around it. The magnitude of the hydrodynamic load varies as a function of velocity and other factors.

Hydrostatic load — The load imposed on an immersed object such as an enclosure wall, by 

standing or slowly moving water. The magnitude of the hydrostatic load increases linearly with 

water depth.

Limit of Moderate Wave Action (LiMWA) — The boundary line given by FEMA on coastal 

map studies marking the extents of Coastal A Zones.

Lowest floor — The lowest floor of the lowest enclosed area of a building, including a basement. Any NFIP-compliant, unfinished or flood-resistant enclosure usable solely for parking 

of vehicles, building access, or storage (in an area other than a basement) is not considered 

a building’s lowest floor, provided the enclosure does not render the structure in violation of 

the applicable design requirements of the NFIP. 

Mitigation Directorate — The component of FEMA directly responsible for administering the 

flood hazard identification and floodplain management aspects of the NFIP. 

New construction— For floodplain management purposes, new construction means structures 

for which the start of construction commences on or after the effective date of a floodplain 

management regulation adopted by a community and includes subsequent improvements to 

the structure. 

Registered Design Professional — An individual who is registered or licensed to practice their 

respective design profession as defined by the statutory requirements of the professional registration laws of the State or jurisdiction in which the project is to be constructed.

Special Flood Hazard Area (SFHA) — An area delineated on a FIRM as being subject to inundation by the base flood. 

Standard residential garage door — A door, typically up to 18 feet wide by up to 8 feet tall, 

intended for use in a residential garage for vehicular access and normally expected to be operated less than 1,500 cycles per year. 
34 Technical Bulletin 9 – AUGUST 2008

Substantial damage — Damage of any origin sustained by a structure whereby the cost of restoring the structure to its before-damaged condition would equal or exceed 50 percent of 

the market value of the structure before the damage occurred. Structures that are determined 

to be substantially damaged are considered to be substantial improvements, regardless of the 

actual repair work performed. 

Substantial improvement — Any reconstruction, rehabilitation, addition, or other improvement of a structure, the cost of which equals or exceeds 50 percent of the market value of the 

structure (or smaller percentage if established by the community) before the “start of construction” of the improvement. This term includes structures that have incurred “substantial 

damage,” regardless of the actual repair work performed.