Guide to 

Expanding Mitigation

MAKING THE CONNECTION TO CODES AND STANDARDS 
The well-being of our families, safety of our homes and prosperity of our 

communities are what we value most. One cost-effective way to safeguard the 

people and places we love from disasters is to adopt codes and standards that 

reduce risk, promote smart land use and save energy. Such codes can provide 

insurance benefits for residents and improve a community’s applications for 

federal mitigation grant funding. Modern codes and standards can keep future 

development out of high-hazard areas. Using them reduces injuries and the cost of 

damage during a disaster, in addition to the indirect costs of energy use, business 

interruptions, lost income and trauma. With lower costs, communities, individuals 

and businesses can get back on their feet more quickly after a disaster. 

Communities can adopt various codes and standards to reduce hazards and be more 

resilient. Updates to codes are often informed by past disasters. The International 

Code Council publishes International Codes (I-Codes) and the minimum requirements 

to protect lives and reduce damage for a risk like the 1%-annual-chance flood. 

To apply at the state or local level, governments must enact ordinances adopting 

the I-Codes. The International Building Code is arguably the most well known. 

Lesser known but effective codes are the International Energy Conservation Code, 

International Plumbing Code, International Wildland Urban Interface Code and 

International Zoning Code. 

This Guide to Expanding Mitigation explains how to benefit 

from diverse codes and standards, communicate the hidden 

costs of failing to act, and work with departments to adopt 

and enforce codes that increase community resilience. It 

also includes case studies where higher standards save 

money. This guide will help officials, especially those in 

emergency management, start conversations about codes 

to make communities more resilient.

This Guide to Expanding 

Mitigation is part of a series

highlighting innovative 

and emerging partnerships 

for mitigation.

Photo: Flooded houses after Hurricane Sandy

Photo: Aerial of the dam and canal locks for shipping on the Oswego River by Phoenix, NY

Cover Photo: Aerial photo of suburban homes in a neighborhood with trees
WHY ADOPT CURRENT CODES AND STANDARDS?

Adopting updated building and zoning codes creates environments that improve public 

health, safety, welfare and economic interests. Zoning specifies the location, type, 

amount, density and characteristics of development permitted in different areas of a 

community. It can be used to restrict development in high-hazard areas or encourage 

development in safer locations. For example, zoning can reduce exposure to hazards by 

only allowing open space uses in floodplains, requiring setbacks between buildings and 

at-risk areas, or creating special-use permits or overlay districts so that construction is 

more resilient to local hazards.

Building codes are another tool that can protect buildings and the people and property 

inside them from hazard events. They ensure structural integrity, systems safety, 

accessibility and achievable levels of energy efficiency. The International Building Code 

is focused on life safety and includes hazard maps and minimum standards to reduce 

risks. Resilience is addressed across I-Code chapters and topics, including those on 

critical facilities, hazardous materials, construction materials, accessibility, emergency 

exits, areas for shelter, and overall building integrity and performance. 

Adopting up-to-date I-Codes is one of its most cost-effective mitigation measures a 

community can take. The 2020 Building Codes Save: A Nationwide Study, published 

by FEMA, reports that the cumulative losses avoided by applying codes are projected 

to grow to over $132 billion by 2040. The 2019 National Institute of Building Sciences 

report found that at the national level, current I-Codes save $11 per $1 spent. 

Communities with both high hazards and growth could save the most.

A community’s building and development code is a comprehensive set 

of interconnected regulations that work together to govern land use, 

development and construction. You know your community best and can 

help guide the adoption and enforcement of codes and standards that 

address its specific hazards and challenges. In addition to the commonly 

known International Building Code and International Residential Code, 

these specific codes deserve a closer look when assessing your 

community’s resilience: 

International Energy Conservation Code: Can enhance social 

resilience through reducing monthly energy costs for vulnerable 

residents. Increases passive survivability, which is a building’s ability 

to maintain critical life-support conditions during extended loss of 

power or heat, potentially reducing pressure on shelters and the 

energy grid. Energy savings can be invested in the community and 

allow for a more rapid response and recovery. These codes also 

reduce greenhouse gas emissions to combat climate change and 

improve public health.

International Plumbing Code: Reduces the impacts of rain, snow 

and flooding by providing ways to convey stormwater away from 

the building and standards for subsoil drainage. It lowers water use 

by setting limits on flow rates. It can be used to reduce the volume 

of potable water supplied to the building, which increases passive 

survivability. Additionally, the code details storage, treatment and 

distribution standards for non-potable water. There are also provisions 

for pipe insulation, which helps save energy throughout the year and 

protects against freezing in cold climates. 

International Wildland Urban Interface Code: Reduces risks 

from wildfire to life and property by regulating structure density 

and location, building materials and construction, vegetation 

management, adequate water supply, and emergency vehicle access.

International Zoning Code: Encourages smart growth strategies 

that help communities adapt to climate change, including flooding 

and sea level rise.

THE HUMAN VALUE OF CODE ADOPTION. 

IT’S MORE THAN DOLLARS AND CENTS.

• More lives saved and fewer people injured. 

• Fewer people displaced and for shorter periods. 

• More people can shelter in place while waiting for repairs. 

• Wellness increases; mental trauma is reduced. 

• Social and business disruption is reduced. 

• Faster recovery from a disaster. 

• Reduced loss of income. 

• Continued public services, including to underserved communities. 

Photo: Aerial view of road intersection
THE HIGH COST OF DOING NOTHING

Many communities avoid adopting current codes or choose to adopt older versions 

because people think more strict requirements may limit development and increase 

building costs. In practice, codes create an environment of predictability and 

transparency for developers that can reduce the need for discretionary approvals. 

Code adoption efforts are successful when the design and construction community 

receives training regarding changes. Adoption and enforcement also keep more 

dollars within local economies. Failing to adopt and enforce current codes places a 

burden on the local community. Take energy codes as an example. States that adopt 

the latest energy code see buildings with better energy use and lower operational 

costs, reduced greenhouse gas emissions, and increased passive survivability. 

See the Guide to Expanding Mitigation: Making the Connection to Electric Power

for more insight on resilient energy.

Outdated or weakened codes pass on 

unnecessary long-term costs to residents, who 

are forced to pay for wasted energy and water. 

They may be unable to return to a safe home 

after a disaster. Not adopting the latest codes 

can also negatively affect people outside your 

community. The inconsistent review and update 

of codes often means larger changes from one 

update to another. These can be confusing and 

burdensome to apply. 

Failing to adopt current codes results in lost tax receipts and missed 

opportunities for revenue from safe, healthy and energy-efficient buildings. 

It may also result in buildings in high-risk areas that cause higher insurance, 

public health and safety costs.

Photo: Row of old homes

WHAT IS A 

“WEAKENED” CODE?

A weakened code occurs when 

a state or community adopts 

the latest code, but then 

passes amendments that 

remove certain requirements.

Photo: New beach house construction
THE ROADMAP FROM CODE CREATION TO IMPLEMENTATION

1. Identify the codes in effect in your community.

2. Build a team.

3. Create a shared strategy for reducing disaster risk.

4. Map out the process for building code adoption.

5. Build the case for modern building code adoption.

6. Advocate.

7. Draft the code.

8. Adopt the code without weakening amendments.

9. Enforce the code.

Photo: Farm fields in Jack’s Reef, New York

TAKE ACTION TO PROTECT COMMUNITIES AND SAVE MONEY

The time to prepare for the future is today. Having modern codes in place before 

a disaster can keep development out of high-risk areas and help a community 

achieve resilient recovery. Emergency managers and code officials should 

work with other local, county and state officials to ensure codes advance the 

mitigation goals of the whole community. When possible, higher standards 

should be included in zoning updates, comprehensive plans and capital 

improvement plans so the community can rebuild resiliently after disasters. 

These efforts should also be included in local hazard mitigation plans. The 

Alliance for National and Community Resilience created Community Resilience 

Benchmarks that encourage communities to review their existing buildings and 

suggest strategies for high-performance designs.

Starting a review and adoption cycle at regular intervals, and not just after a 

disaster, allows jurisdictions to respond to changes in climate, population and 

growth. It also shows they are committed to improving the lives of their citizens 

now and in the future.

When starting to review, adopt or update codes and standards, consider including the 

following people and/or groups:

• Community associations and individual residents and citizens.

• Local and state government leaders.

• Community planners and/or planning associations.

• Construction and real estate development industry professionals, including 

builders, architects, engineers, contractors, landlords and real estate agents.

• The broader business community.

• Civic and advocacy organizations.

• Emergency management agencies.

Once codes are adopted, development proposals are either reviewed and permitted 

by-right or are subject to review and approval by a local government to confirm they 

adhere to standards. As a proposal goes through technical review, various departments 

may review it. In Myrtle Beach, South Carolina, the planning, emergency management, 

fire, police, and water and sewer departments meet to review proposals. That way, the 

committee can raise concerns to the expert, such as an expected increase in fire service 

demand due to a subdivision proposal.

Photo: Close up of two people reviewing building blueprints
WHAT’S ENFORCEMENT GOT TO DO WITH IT?

Adopting modern codes isn’t enough to protect communities and save money. 

To be effective, codes must be enforced. Planners, emergency managers and 

code enforcement officials work directly with residents and are often their primary 

contact with government. Their roles are critical for educating the public about 

stronger codes and standards. 

Understanding the technical parts of land use regulation and construction is 

only one part of the job. Those responsible for enforcing codes should also have 

strong customer service skills. In the city of Rochester, New York, enforcement 

officers include former schoolteachers, veterans and community organizers. The 

department’s multilingual and diverse staff reflect the residents they serve. 

Working with residents in code enforcement means: 

• Making a complex system easier to understand: When people are closer 

to the problems and solutions, we can expect to see better results in 

community development.

• Increased support for codes and standards: Shared ownership and 

buy-in is achieved when residents affected by the policies are involved in 

decision making.

EQUITABLE ENFORCEMENT

At its best, code enforcement is used as a community building 

tool to support investments in neighborhoods that were previously 

ignored and experienced housing discrimination. At its worst, code 

enforcement gives privilege to those who make complaints, sends 

more resources to those with the loudest voices, and neglects those 

with the most need. 

Equitable code enforcement can avoid a “complaint-based” system. 

This solution is based on data and can involve those most in need 

without burdening them. For example, repeat fines may show a need 

for help to comply, and municipalities can offer these owners grants 

or low-interest loans to fund repairs.

Photo: Construction engineers discussing blueprints Photo: Drainage culvert with pipe under a path Photo: Engineer examines building with digital tablet
Photo: Hurricane Sandy aftermath on Staten Island

BEYOND CODE REQUIREMENTS: 

CASE STUDIES OF HIGHER STANDARDS

While designing to codes can save lives and money, adopting higher standards has 

other benefits. The 2019 National Institute of Building Sciences report found that 

designing all new construction to exceed the latest available codes could result in a 

national benefit of $4 for every $1 invested. Communities across the country have 

found creative solutions to go above and beyond to build in long-term resilience. 

Staten Island Special Coastal Risk District

After home buyouts on the East Shore of Staten Island, New York, which was 

heavily damaged by Hurricane Sandy, the city created a zoning overlay. The 

Special Coastal Risk District adds requirements beyond the residential base 

zoning. This overlay limits all new development in the buyout areas to singlefamily detached homes. To ensure any new growth aligns with the vision to return 

the area to wetlands, the overlay also creates a permit that requires approval by 

the planning commission. 

Maryland Coast Smart Siting and Design Criteria 

Coastal Maryland communities are at risk to rising sea levels. More than two 

dozen of these areas could see chronic sunny day flooding and sinking land by 

2025. As a result, the county and city have adopted higher building standards in 

at-risk areas. 2020 standards now require eligible structures to be built (or rebuilt) 

with their lowest floor 3 feet above the base flood elevation. Benefits of these new 

rules include connecting siting and design with the flood zones shown on FEMA’s 

flood maps. They use existing mapping data from FEMA and Maryland. They are 

also consistent with FEMA best practices for siting critical facilities.

Wildfire Site Assessment in Santa Fe

In Santa Fe, New Mexico, major fires in 2003 and 2011 burned 17,000 acres 

and heavily affected air quality, local water, recreation and tourism. Since then, the 

community has worked to set up an overlay district within an area of 500 acres where 

the foothills meet the plateau. Any proposed development within the district is subject 

to strict building rules to reduce wildfire risk. Reducing wildfire risk in this area includes 

reviewing sites, vegetation and parcel data. 

New York City Climate Resilient Design Guidelines

The guidelines create higher building standards for city-owned properties and explain 

how to pair historic climate data with forward-looking climate projections in the design of 

city facilities. They also note that a successful resilience strategy “provides co-beneficial 

outcomes, reduces costs over the life of the asset wherever possible, and avoids 

negative indirect impacts to other systems.” Designers must look at the useful life of 

a capital project and build it to withstand impacts to the climate change projections for 

heat, precipitation and sea level rise.

When our codes and standards are informed by climate change data and incorporate 

future risk, our communities take a proactive approach to mitigation and will be more 

prepared through the lifespan of a development.

Photo: Brush fire near houses
RESOURCES

Guides to Expanding Mitigation 

https://www.fema.gov/about/organization/region-2/guides-expanding-mitigation

Thinking Beyond Flood Maps

https://storymaps.arcgis.com/stories/da2b7cb4ad53424980be99e9ffeeb374

Using FEMA Coastal Data to Reduce Risk and Build Resilience

Building Codes Save: A Nationwide Study

https://www.fema.gov/sites/default/files/2020-11/fema_building-codes-save_

study.pdf

Losses Avoided as a Result of Adopting Hazard-Resistant Building Codes

Protecting Communities And Saving Money

https://www.fema.gov/sites/default/files/2020-11/fema_building-codes-save_

brochure.pdf

The Case For Adopting Building Codes

Alliance for National and Community Resilience

http://www.resilientalliance.org/

A coalition advancing benchmarks for community resilience

Building Energy Codes Program

https://www.energycodes.gov/

Resources to support the adoption of model energy codes

ACKNOWLEDGEMENTS

Project Team: Yana Tukvachinski, FEMA Region 2; Jack Heide, 

FEMA Region 2; Melissa Herlitz, Resilience Action Partners; Toni Marie Pignatelli, 

Resilience Action Partners; Jennifer Gutierrez, Resilience Action Partners

We thank the following individuals who contributed their time toward 

advancing our understanding of mitigation and codes and standards: 

Illya Azaroff, +LAB Architect PLLC; Cynthia Barton, Hagerty Consulting; 

Ryan Colker, International Code Council; Carmen Cejudo, Ellen Franconi, 

Chrissi Antonopoulos and Mark Halverson, Pacific Northwest National 

Laboratory; Tom Eisele, New York Passive House; Nicholas Rajkovich, 

University of Buffalo; Allison Hardin, City of Myrtle Beach

REFERENCES 

Cities for Responsible Investment and Strategic Enforcement. 2019. 

“The Power & Proximity of Code Enforcement: A Tool for Equitable Neighborhoods.” 

https://hesterstreet.org/wp-content/uploads/2019/07/CR_-Phase-I-_Equitable-CodeEnforcement-report_FINAL-JUNE-2019.pdf

Hazard Mitigation: Integrating Best Practices into Planning 

https://www.planning.org/publications/report/9026884/

FEMA Building Science Branch. 2020. “Building Codes Save: A Nationwide 

Study – Losses Avoided as a Result of Adopting Hazard-Resistant Building Codes.” 

https://www.fema.gov/emergency-managers/risk-management/building-science/

building-codes-save-study

Headwaters Economics. 2016. “Santa Fe, New Mexico: A Coordinated Approach to 

Protecting the Escarpment.” https://headwaterseconomics.org/wp-content/uploads/

Planning_Lessons_SantaFe_Manuscript.pdf

International Code Council. 2019. “Resilience Contributions of the International 

Building Code.” https://www.iccsafe.org/wp-content/uploads/19-17804_IBC_

Resilience_WhitePaper_FINAL_HIRES.pdf

National Institute of Building Sciences. “Benefits and Challenges of a Timely Code 

Adoption Cycle.” https://www.caba.org/wp-content/uploads/2020/04/IS-2018-92.pdf

National Institute of Building Sciences. 2019. “Natural Hazard Mitigation Saves: 2019 

Report.” https://www.nibs.org/reports/natural-hazard-mitigation-saves-2019-report

New York City Department of City Planning. Resilient Neighborhoods: East Shore, Staten 

Island. https://www1.nyc.gov/site/planning/plans/resilient-neighborhoods/east-shore.page

New York City Mayor’s Office of Resiliency. 2020. “Climate Resiliency Design 

Guidelines.” https://www1.nyc.gov/assets/orr/pdf/NYC_Climate_Resiliency_

Design_Guidelines_v4-0.pdf

Vaughan, Ellen and Turner, Jim. “The Value and Impact of Building Codes.” 

https://www.eesi.org/files/Value-and-Impact-of-Building-Codes.pdf

ENGAGE WITH US

Are you a state, local, tribal or territorial official interested in making the connection 

between codes and standards and hazard mitigation? Are you a code enforcement 

professional interested in connecting with local officials to reduce risk from 

hazards? Please contact us at fema-expandingmitigation@fema.dhs.gov.