HomeMy WebLinkAbout102824 - FW_ Jefferson County_ WA floodway technical assistance requestFYI
From: Gerlach, Matthew (ECY) <mger461@ECY.WA.GOV>
Sent: Thursday, October 12, 2023 5:59 PM
To: Brent Butler <BButler@co.jefferson.wa.us>; Josh Peters <JPeters@co.jefferson.wa.us>
Cc: Sandercock, Maria (ECY) <MARI461@ECY.WA.GOV>; Huff, Mary (ECY) <mahu461@ECY.WA.GOV>; Schmidt, Lynn (ECY) <LYNS461@ECY.WA.GOV>; Richardson, Amanda (ECY) <amri461@ECY.WA.GOV>; Harris,
Bryr <bryr.harris@fema.dhs.gov>; Sarpong, Suzanne <suzanne.sarpong@fema.dhs.gov>
Subject: Jefferson County, WA floodway technical assistance request
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Hello Brent and Josh-
Thank you for requesting technical assistance from Ecology’s floodplain management unit regarding regulatory provisions related to National Flood Insurance Program (NFIP) compliance.
We understand that Jefferson County is exploring permitting pathways for potential floodplain development near Brinnon, WA that would occur in a mapped floodway. Jefferson County permits
floodplain development following Title 15.15 of Jefferson County Code (JCC), so Ecology’s technical assistance will focus on interpreting the provisions of Title 15.15 that Jefferson
County will need to be attentive to. To help frame conversations regarding new development proposals, we encourage all decision makers to take a look at the Statement of Purpose outlined
in JCC Title 15.15.030. This section of JCC serves as a good reminder of Jefferson County’s responsibility to implement a flood hazard prevention ordinance with the goal of protecting
public health, promoting public safety and conserving resources by making permitting decisions that ensure existing and new development is reasonably safe from flooding.
JCC Title 15.15.070(1) requires that a floodplain development permit shall be obtained before construction or development begins within any special flood hazard area. Within the special
flood hazard area is the floodway, which is defined as “the channel of a river or other watercourse and the adjacent land areas that must be reserved in order to discharge the base
flood without cumulatively increasing the water surface elevation more than a designated height.” The primary benefit to designating a floodway and regulating development within that
floodway is to preserve a portion of the floodplain to convey flood waters from upstream to downstream. Without these requirements, development over time would encroach into the floodway
and obstruct the flow of floodwaters thus increasing upstream flood elevations and potentially increasing flood risk for neighboring properties. Since the floodway is an extremely hazardous
area due to the velocity of floodwaters that can carry debris and increase erosion potential, JCC Title 15.15.080(4) outlines a number of provisions that must be followed in order to
ensure existing and proposed development in/near a floodway is reasonably safe from flooding. Jefferson County has a responsibility to prohibit encroachments, including fill, new construction,
substantial improvements and other development in floodways. New residential development is not allowed in floodways under any circumstances; it would never be appropriate to issue
a variance to permit new residential development in the floodway.
In some limited circumstances, new non-residential development can be authorized in floodways following JCC Title 15.15.080(4). Engineering analysis provided by a registered professional
engineer in Washington State must show through hydraulic and hydrologic analyses performed in accordance with standard engineering practice that a proposed development would not result
in any increase in base flood elevation. This analysis is usually called a “no-rise” or “zero-rise” analysis and results in a “no-rise” or “zero-rise” certification by a qualified registered
professional engineer. FEMA defines “any increase in base flood elevation” as meaning a zero increase (greater than 0.00 feet). It does not mean that you can allow a 0.1 foot or even
a 0.01 foot increase – it means nothing greater than 0.00 feet. If you do not limit the increase to zero, the small increases in flood heights from individual developments will cumulatively
have significant impacts on flood stages and flood damages, and may transfer flood risk to neighboring properties.
Attached to this email is a guidance document from FEMA titled “Guidance for Flood Risk Analysis and Mapping” from November 2021. This guidance document is a fantastic reference that
explains the assumptions and engineering analysis behind the creation of floodways. Section 11.3 provides guidance on how a “no-rise” certification is to be developed by a professional
engineer, and Section 11.4 provides guidance for floodplain managers on evaluating “no-rise” analyses submitted by engineers. Page 48 of the guidance document provides an excellent
list of considerations for local floodplain managers reviewing “no-rise” analyses, including:
* “The registered professional engineer should be experienced in conducting hydrologic and hydraulic studies. You do not have to accept a certification if you do not feel that the engineer
is qualified to conduct the analysis.
* The analyses must be conducted using the hydraulic model that was used to develop the flood insurance study if it is still available. The analysis should follow the same assumptions
made when the effective hydraulic model was developed, unless shown to be invalid.
* The analyses should be consistent with basic hydraulic principles. For example, there needs to be smooth transitions in flood flows between cross sections where 1D models were used.
Abrupt changes in floodway width for example should be avoided.
* If the development is located between existing cross sections in a 1D model, additional cross sections must have been surveyed at the site of the development to accurately model the
impacts of the development. Where a 2D model is used, evaluation lines should be added if existing lines do not coincide with the site of the proposed development.
* The analysis should not include unrealistic land use or hydraulic assumptions. For example, if the analysis assumes that roughness coefficients used in the original flood insurance
study are changed, the new roughness coefficients must reflect what is actually on the ground.
* There should be no cumulative impacts if other property owners undertake similar developments. It is important that there really is no increase in flood stage due to the development.
* When a 2D model is used, the water surface elevation grids for Existing Conditions and Proposed Conditions should be compared to ensure that the proposed development causes no local
(point) rise on existing insurable structures.
* If the no-rise analysis depends on adding additional flow areas to compensate for the impacts of an encroachment, you must ensure that the flow area will be available in perpetuity
and that the floodwaters can get to and use that flow area. You will want to require the applicant to apply for a floodway revision and adopt the revised floodway as part of your ordinance.”
Generally, it is expected that development in the floodway, such as a new commercial building, will cause an increase in flood stage and be unable to meet the zero-rise requirements
above. In these situations, the applicant must request the community consider revising the special flood hazard area through the Letter of Map Change process with FEMA. The community
must be a willing partner to this request, otherwise FEMA will not approve the map change and the development can’t proceed. If the community is willing to consider the map change,
then the applicant must initiate a Conditional Letter of Map Revision (CLOMR) by submitting the MT-2 paperwork <https://www.fema.gov/flood-maps/change-your-flood-zone/paper-application-forms/mt-2>
packet to FEMA. A CLOMR is FEMA's comment on a proposed project that would, upon construction, affect the hydrologic or hydraulic characteristics of a flooding source and thus result
in the modification of the existing regulatory floodway, the effective base flood elevations, or the special flood hazard area. The letter does not revise an effective NFIP map, it
indicates whether the project, if built as proposed, would be recognized by FEMA. FEMA charges a fee for processing a CLOMR to recover the costs associated with the review. Please see
MT-2 Instructions <https://www.fema.gov/sites/default/files/documents/fema_mt-2-instructions-2022.pdf> for all of the needed engineering analyses, notification requirements, fees,
and other information needed for a complete CLOMR submittal. The attached document “MT-2 table.pdf” provides a brief summary of those requirements. We’d like to make sure that you are
aware of the very last requirement in that table, “Regulatory Requirements of 44 CFR § 65.12.” If the proposed project results in BFE increases between the pre-project (existing conditions)
and the proposed conditions, and they are more than 0.00 foot as a result of encroachment within a regulatory floodway, certification is required that no structures are affected by
the BFE. It is our understanding that if that certification is unable to be produced, the project will not be accepted by FEMA during the CLOMR review process. Based on the outcome
of the CLOMR, there may be additional requirements in order for the proposed development to go forward. We will save that discussion for a later date if/when any future development
is proposed.
Another area of floodplain permitting that Ecology would encourage Jefferson County to explore in regards to future development near Brinnon, WA is Endangered Species Act (ESA) compliance.
Jefferson County has watercourses that drain into Puget Sound and is therefore subject to the requirements of the Puget Sound Biological Opinion (BiOp). According to the BiOp, the floodway
is part of the “Protected Area” which means that development proposals must avoid adverse impacts to floodplain functions or compensatory mitigation is provided so there are no adverse
impacts on floodplain functions that support ESA listed species in addition to other requirements. Attached to this email is a FEMA guidance document on floodplain habitat assessments
that provides additional information on BiOp requirements. Ecology would encourage Jefferson County to reach out to Bryr Harris at FEMA RX for technical assistance on gaining ESA compliance
for future floodway development. We note that a CLOMR application also requires ESA compliance in order for the application to be deemed complete.
Finally, we’d like to briefly mention floodproofing requirements for non-residential buildings that Jefferson County should be thinking about. FEMA has an excellent guidance document
titled, “Requirements for the Design and Certification of Dry Floodproofed Non-Residential and Mixed-Use Buildings <https://www.fema.gov/sites/default/files/documents/fema_technical-bulletin-3_1-202
1.pdf> ,” from January 2021. In Section 1.3 of that guidance document, “Limitations on the use of Dry Floodproofing,” FEMA does not recommend the use of dry-floodproofing in locations
where base flood velocities are greater than 5 feet per second. The mean velocities across cross-sections near the area of interest are approaching 5 feet per second in some locations,
so it would be worth requiring applicants to investigate base flood velocities in the floodway to ensure dry floodproofing would be appropriate following the standards of JCC Title
15.15.080(2)(b).
Please let us know if you have any questions on this information. CC’d to this email for situational awareness are Amanda Richardson, Ecology’s state NFIP coordinator; Lynn Schmidt,
Ecology’s flood engineer; Mary Huff, Ecology’s floodplain management unit supervisor; Maria Sandercock, Ecology’s Southwest SEA section manager; Suzanne Sarpong, FEMA RX floodplain
management specialist; and Bryr Harris, FEMA RX senior NFIP and ESA specialist.
Best,
Matt Gerlach he/him/his | Floodplain Management Planner | WA Dept. of Ecology | (C) 360.584.2804 |
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