Document ID: FEMA-2015-0006-0376
Agency: fema
Document Type: Supporting & Related Material
Title: 
Posted Date: 2016-08-22T04:00Z

FEMA  POLICY:  Guidance for Implementing the Federal Flood Risk Management Standard (FFRMS)
                               FEMA Policy 078-3
      

      BACKGROUND 
This policy applies to FEMA Federally Funded Projects.  FEMA Federally Funded Projects are actions where FEMA funds are used for new construction, substantial improvement, or to address substantial damage to structures or facilities.  This policy applies to both "critical" and "non-critical" actions, as defined below.  This policy does not apply to assistance provided for emergency work essential to save lives and protect property and public health and safety, performed pursuant to Sections 403 and 502 of the Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988. This policy does not apply to the non-grant components of the National Flood Insurance Program (NFIP).  
      PURPOSE 
      This policy sets forth how FEMA will apply the Federal Flood Risk Management Standard (FFRMS) to establish the floodplain for FEMA Federally Funded Projects.  
      PRINCIPLES 
      By expanding floodplain management to a higher vertical flood elevation and corresponding horizontal floodplain, FEMA will:
      
     A.         Help ensure that communities affected by future flood disasters are less vulnerable to the loss of life and property. 
     B. Improve the resilience of FEMA Federally Funded Projects against the impacts of flooding to ensure such projects will last as long as intended. 
     C. Provide additional protection against flooding for critical FEMA Federally Funded Projects by using the best available, actionable climate science as a preferred approach, where available and at the election of the applicant for FEMA funding.  
      REQUIREMENTS 
      In accordance with Section 2(a)(1) of Executive Order (EO) 11988, as amended by EO 13690, before taking an action, FEMA will determine whether a proposed action will occur in a floodplain.  For all actions which are FEMA Federally Funded Projects, FEMA will use the FFRMS definition of the floodplain.  FEMA will coordinate with applicants for FEMA funding to ensure there is consideration of the location of the floodplain and elevation of the floodplain during the planning phase of project applications to inform construction requirements.
      
      A. PHASE 1: USE OF THE APPROACHES OF THE FFRMS
      Outcome: FEMA determines if the FEMA Federally Funded Project is a critical or non-critical action, and applies the appropriate vertical flood elevation and corresponding horizontal FFRMS floodplain in the decision-making process described in 44 Code of Federal Regulations (C.F.R.) § 9.6.  Figures 1 and 2 provide an overview of the decision-making process.
      
      1.       For all FEMA Federally Funded Projects that are not critical actions, FEMA will use the FFRMS-Freeboard Value Approach (FVA) to establish the vertical flood elevation and corresponding horizontal FFRMS-FVA floodplain.  The FFRMS-FVA is based upon the current base flood elevation for the location of the proposed action as determined under the procedures of 44 C.F.R. Part 9, with the addition of freeboard to account for uncertainties in future conditions.  A freeboard of two feet must be added to the current base flood elevation to establish the vertical flood elevation and corresponding horizontal FFRMS-FVA floodplain.  
            
      2.       For all FEMA Federally Funded Projects that are critical actions, FEMA will use, at a minimum, the FFRMS-FVA to establish the vertical flood elevation and corresponding horizontal FFRMS-FVA floodplain.  A freeboard of three feet must be added to the current base flood elevation to establish the vertical flood elevation and corresponding horizontal FFRMS-FVA floodplain.  
               
      3.       For proposed FEMA Federally Funded Projects which are critical actions, the applicant may elect to use the FFRMS-CISA instead of the FFRMS-FVA if the elevation reached using the FFRMS-CISA is higher than the elevation reached using the FFRMS-FVA.  FEMA encourages use of the FFRMS-CISA where actionable science is available, and where the FFRMS-CISA elevation is higher than the FFRMS-FVA elevation. 
           
           a.            FEMA may consider information presented by the applicant or any other Federal agency in this evaluation. 
           
           b.            The FFRMS-CISA should consider the best available, actionable hydrologic and hydraulic data and methods which integrate current and future changes in flooding based on climate and related science.  These data and methods may come from Federal, State, Tribal, local, or other sources.  FEMA will evaluate whether the FFRMS-CISA methodology is appropriate for the action being considered and meets the criteria of actionable science.  

      4.       FEMA may not take an action if it is inconsistent with the criteria of the NFIP or any more restrictive Federal, State, or local floodplain management standards. 
           
                                       
Figure 1: Process to Establish the Appropriate Floodplain to Use for the Eight-Step Decision Making Process

                                       
           
Figure 2: Eight-step Decision-making Process for EO 11988, as amended by EO 13690
                                       
                                       
      A. PHASE 2: COORDINATION WITH OTHER FEDERAL AGENCIES  
      Outcome: FEMA coordinates with other Federal agencies to select an approach of the FFRMS appropriate to the action when engaging in a FEMA Federally Funded Project with, or in the same area as another Federal agency.  
      
      1.       When multiple Federal agencies are conducting, supporting (including funding), or permitting projects in the same geographic area, early coordination is essential to avoid the potential for conflicting standards being applied within the same geographic area or on the same project.
           
                  a.            Accordingly, when FEMA is funding a Federally Funded Project with or in the same area as another Federal agency, FEMA will coordinate with the applicable Federal agencies as early in the planning process as possible to coordinate the application of EO 11988, as amended by EO 13690.  
                     
                  b.            When coordinating with other Federal agencies, FEMA may elect to use the FFRMS approach of another Federal agency to establish the vertical flood elevation and corresponding FFRMS floodplain.  
         
      2.       In a declared major disaster, the Unified Federal Review (UFR) process offers additional coordination opportunities for FEMA and other Federal agencies.  FEMA, as a party to the memorandum of understanding establishing the UFR process, has committed to exercising flexibility in conducting environmental reviews.  FEMA has agreed to a provision in this memorandum of understanding that allows for higher-level resolution in instances where agreement on a common approach reaches an impasse.  

         

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                            ADDITIONAL INFORMATION

     REVIEW CYCLE
     FEMA Policy 078-3 Guidance for Implementing the Federal Flood Risk Management Standard will be reviewed, reissued, revised, or rescinded within 4 years of the issue date.  

     AUTHORITIES
        A. Executive Order 11988, Floodplain Management
        B.      Executive Order 13690, Establishing a Federal Flood Risk Management Standard and a Process for Further Soliciting and Considering Stakeholder Input
        C. 44 C.F.R. Part 9

     REFERENCES
        A.      Water Resources Council.  Guidelines for Implementing Executive Order 11988, Floodplain Management, and Executive Order 13690, Establishing a Federal Flood Risk Management Standard and a Process for Further Soliciting and Considering Stakeholder Input, October 2015.  
     
     DEFINITIONS 
     1 Percent Annual Chance Flood Elevation or Base Flood Elevation: the computed elevation to which floodwater is anticipated to rise during the 1 percent annual chance or base flood.  The specific term "base flood elevation" or BFE is used in the National Flood Insurance Program (NFIP) and shown on FEMA Flood Insurance Rate Maps (FIRMs) and on the flood profiles in the FEMA Flood Insurance Study (FIS) Reports to indicate the minimum level of flooding to be used by a community in its floodplain management regulations.
     
     Action:  any action or activity including: (a) acquiring, managing and disposing of Federal lands and facilities; (b) providing federally undertaken, financed or assisted construction and improvements; and (c) conducting Federal activities and programs affecting land use, including, but not limited to, water and related land resources, planning, regulating and licensing activities.
     
     Actionable Science: theories, data, analyses, models, projections, scenarios, and tools that are: 
      *            Relevant to the decision under consideration;
      *            Reliable in terms of its scientific or engineering basis and appropriate level of peer review;
      *            Understandable to those making the decision;
      *            Supportive of decisions across wide spatial, temporal, and organizational ranges, including those of time-sensitive operational and capital investment decision-making; and 
      *            Co-produced by scientists, practitioners, and decision-makers, who create rigorous and accessible products that meet the needs of stakeholders.
     
     
     Critical Action: an action for which even a slight chance of flooding is too great. Critical actions include, but are not limited to, those which create or extend the useful life of structures or facilities: (a) Such as those which produce, use or store highly volatile, flammable, explosive, toxic or water-reactive materials; (b) Such as hospitals and nursing homes, and housing for the elderly, which are likely to contain occupants who may not be sufficiently mobile to avoid the loss of life or injury during flood and storm events; (c) Such as emergency operation centers, or data storage centers which contain records or services that may become lost or inoperative during flood and storm events; and (d) Such as generating plants, and other principal points of utility lines.
     
     Federal Flood Risk Management Standard (FFRMS): the national flood risk management standard established by Executive Order 13690 to be incorporated into existing processes used to implement Executive Order 11988.
     
     Federal Flood Risk Management Standard (FFRMS) floodplain: the area subject to flooding as determined by one of the following approaches:
                a.             Climate-informed Science Approach (CISA): The elevation and flood hazard area that result from using a Climate-informed science approach that uses the best-available, actionable hydrologic and hydraulic data and methods that integrate current and future changes in flooding based on climate science. This approach will also include an emphasis on whether the action is a critical action as one of the factors to be considered when conducting the analysis. 
                b.             Freeboard Value Approach (FVA): The elevation and flood hazard area that result from using the freeboard value, reached by adding an additional 2 feet to the base flood elevation for non-critical actions and by adding an additional 3 feet to the base flood elevation for critical actions. 
                c.             "0.2 Percent Annual Chance" Flood Approach (0.2PFA): The area subject to flooding by the 0.2-percent-annual-chance flood. 
                d.             The elevation and flood hazard area that results from using any other method identified in an update to the FFRMS. 
     
     Federally Funded Projects: actions where Federal funds are used for new construction, substantial improvement, or to address substantial damage to structures or facilities.
     
     MONITORING AND EVALUATION
     The Mitigation Framework Leadership Group is responsible for reassessing the FFRMS annually and providing recommendations to the Water Resources Council, which will issue an update to the FFRMS at least every 5 years.  The FEMA Office of Environmental Planning and Historic Preservation (OEHP) in coordination with FEMA Programs that provide Federal funding will specifically monitor the Mitigation Framework Leadership Group's reviews and updates to the FFRMS and will update this policy as necessary.  
     
     QUESTIONS
Direct questions to OEHP at FEMA-ActionOffice-FIMA@fema.dhs.gov.