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By Luanne Principe �
In Disaster Recovery Today issue#4008,"Mitigation Funding in the
FEMA Public Assistance Program,'we explored FEMNs mitigation
funding through the 404 and 406 programs—including their "
history,benefits and importance to communities.
� n
Issue#4013,"Mitigation Measures Sound Investments in Disaster
Recovery,'addressed mitigation action plans and understanding the :Y
foundation of hazard mitigation.Alternative funding approaches �' F
were discussed in issue#4016,"Supplemental Funding Sources in
Community Recovery," `
ye`;
Getting Started "Regardless of which
To complete a comprehensive BCA for a flood mitigation project,it is important to obtain a current Flood
Insurance Rate Map(FIRM)and Flood Insurance Study(FIS).These documents will define the special grant program a sub—
hazard area of the project,flood elevation data and profiles,streambetl elevations,and flood discharges.
applicant is applying
SOURCEDOCUMENTS to, the application must
Basefloodorfirst.floorflood elevation Professionalengineerorsurvey or present the projects clear
Building Replacement Value(BRV) Tax records,building inspector,contractor or an benefits) if it is to be
estimate derived from a national cost estimating
..............I....................guide.................................. successful.
Building area(square footage) Tax records,property appraiser,real estate listing
Flood hazard data Flood Insurance Study(FIS)or hydrology study
..................................................I.....................
.
Building contents data Receipts,itemized insurance policy and/or FEMA
default of 50 percent of BRV
.........................................................................
Displacement costs Advertisements,rental agreements and/or FEMA
default cost per square foot(per month)
Flood frequency data Flood Insurance Study,hydrology study,historical
records,flood depths,damage costs
................................................................... THE AUTHOR
Before mitigation data Flood Insurance Study or hydrology study,
insurance claims,receipts,newspaper articles
.............................................................I...........
After mitigation data Statement from engineer or professional
.........................................................................
Document loss of function Traffic counts from engineer or state department of
transportation
Project cast Cost estimate breakdown and maintenance casts
REFERENCES: FEMA BCA Reference Guide 508 Final—June 2009 4>,
FEMA Supplement to the 8CA Reference Guide 508—June 2011
Natural Hazards Review—ASCE November 2007 ;-6
HMA Unified Guidance-2013 Luanne Principe
F€MA BCA Toolkit 5.1
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All of these efforts call for cost-effective The Stafford Act gives FEMA the authority
projects that may be supported through to fund the restoration of eligible facilities
an acceptable Benefit Cost Analysis(BCA). that have sustained damage due to a
Preparing such a BCA is the subject of this presidentially declared disaster.Section
issue of Disaster Recovery Today. 406 of the Stafford Act contains a provision
for the consideration of funding additional
Requirement measures(further described in 44 CFR€
The Robert T.Stafford Disaster Relief 206.226)that will enhance a facility's ability
and Emergency Assistance Act requires to resist similar damage in future events.
that mitigation measures be deemed These mitigation measures must be cost
cost effective for funding to be available effective.Under section 406 Repair and
through the 404 and 406 programs. Replacement of Damaged Facilities,any one
of the following means may be used to
The 404 program does not neccessarily determine cost effectiveness:
apply to facilities damaged from a current
disaster.It focuses on repetitive damages •Mitigation measures may amount to
from past disasters and funds new or up to 15 percent of the total eligible
unproved facilities. cost on the eligible repair work for a
particular project.
In contrast,the 406 program focuses on
a current disaster and the elements or •Certain mitigation measures,under
systems damaged as a direct result of the Public Assistance 406 Mitigation
it.Under 406,FEMA will do more than Program,will be considered effective
fund the repair or replacement of the as long as the mitigation measure
damaged facility to its pre-disaster design, does not exceed the eligible cost of
function and capacity:it will also authorize the eligible repair work on the project.
additional funding to modify the damaged
facility to mitigate potential future damage. •For measures that exceed the
eligible costs,the applicant must
demonstrate—through an
acceptable benefit cost analysis—
that the measure is cost effective.
A Benefit Cost Analysis is a method for
determining the potential positive effects
of a mitigation measure and comparing
them to the cost of the measure.The
desired effect is a reduction in future
damages.The BCA can also be used to
evaluate alternative projects to determine
which is the best alternative from a fiscal
standpoint.The end result is a Benefit
Cost Ratio(BCR),which is derived from a
11 IN• ., •
"A Benefit Cost Analysis is a method
project's total net benefits divided by its for determining the potential
total cost. positive effects of a mitigation
The BCR is a numerical expression of the measure and comparing them to
cost effectiveness of the project.BCRs of the cost of the measure."
1.0 or greater have more benefits than
costs—and are therefore cost effective.
The examples below demonstrate two tried to provide a rigorous,consistent set of
scenarios—one cost effective and one methods for measuring benefits and costs
not cost effective. to decide whether a project is worthwhile.
The development of BCAs carne as a result In the new millennium,the Disaster
of the impetus provided by the Federal Mitigation Act of 2000(DMA2K)focuses
Navigation Act of 1936,which required that on taking action to reduce the impacts
the U.S.Army Corps of Engineers(USACE) of hazards before disasters occur.The
carry out projects for the improvement of goal of DMA2K is to help federal and
a waterway system when the total benefits state reviewers evaluate mitigation plans
of a project exceed the costs.Thus,USACE from multiple jurisdictions in a fair and
created a systematic method for measuring consistent manner,and to help states and
such benefits and costs.It wasn't until 20 local jurisdictions develop new mitigation
years later,in the 1950s,that economists plans or modify existing ones.'
EXAMPLE 1 EXAMPLE 2
COST EFFECTIVE NOT COST EFFECTIVE
SUMMARY OF •STS SUMMARY OF •
EXPECEEDANNUAL PRESENTVALUE EXPEaED ANNUAL PRESENTVALUE
Expected Annual Damages Expected Annual Damages
Before Mitigation $5,431 $74,952 Before Mitigation $3,960 $54,645
Expected Annual Damages Expected Annual Damages
After Mitigation $3,913 $54,003 After Mitigation $3,911 $53,969
Expected Avoided Damages Expected Avoided Damages
After Mitigation(BENEFITS) $1,518, $20,949 After Mitigation(BENEFITS). $49 .$676 .
PROJECT COSTS $1�,OQ0: PROIEC;•(65 TS $10 A0Q
PROJECT BENEFITS $2Q,949 I?ROIECT BENEFITS $676
BENEFITS M�N{j5 COSTS" � ,� r $10,949: �, •-�BE�4TS�W5;COS$��, �a,�� f����'� , 9�24�`�"y��-�',;��`z,
SOURCE: FEMA Benefit-Cost Analysis Re-Engineering(SCAR)Damage Frequency Assessment(DFA)Methodology Report—May 2009 Version 4.5
'An often-overlooked section in DMA2K is:REDUCED FEDERAL SHARE—"The President shall promulgate regulations to reduce the federal share of assistance under this section to
not less than 25 percent in the case of the repair,restoration,reconstruction,or replacement of any eligible public facility or private nonprofit facility following an event associated
with a major disaster—(A)that has been damaged,on more than one occasion within the preceding 10-year period,by the same type of event;and(B)the owner of which has
failed to implement appropriate mitigation measures to address the hazard that caused the damage to the facility."
10 N A L,C 0
To Pursue demonstrate the cost effectiveness of their
It is beneficial to pursue discretionary projects.This ensures that the calculations
cost-effective 406 hazard mitigation and methods are standardized,facilitating
funding.FEMA will review the BCA for the review process.Most federal agencies
proposed mitigation projects submitted will follow similar methodologies and will
under FEMNs grant programs.That review require the same level of detail represented
will determine whether the information in the FEMA BCA Toolkit.
provided in the application demonstrates:
1. The BCA components are credible Key Considerations
and well documented; All BCA data entries must be documented
2. The BCA is prepared in accordance in the project description or scope of work.
with accepted FEMA BCA practices; That documentation should include the
3. The project is cost effective. source of the data (title,author,date)and
a thorough description of the project and
how the proposed action will mitigate
`... all benefits and costs of a project future damages.
should always be measured in terms The data must be from a credible source.
of their equivalent monetary value." These include federal,state,county,
regional or local agencies and/or qualified
professionals such as engineers,architects
General Data Requirements and surveyors.
Computing many of the benefits and costs
of a project is a straightforward process, Mitigation project costs should be fully
but others are more difficult to measure. documented and supported with cost
Therefore,some basic principles are estimates from appropriate sources.For a
needed as a guide. BCA,the mitigation project costs should
always be the total project mitigation cost
To determine the BCA feasibility of a project, before reductions of anticipated insurance
all of its aspects—both positive and proceeds and never be only the federal
negative—must be expressed in terms of share.Mitigation project costs must include
a common unit.The most convenient unit is anticipated maintenance costs.
dollars.This means that all benefits and costs
of a project should always be measured in BCA is a net present value calculation
terms of their equivalent monetary value. that takes into account the useful life of
mitigation projects and the time value of
FEMA has developed software,written money.The amount of goods that can be
materials and training that help simplify purchased with a given amount of money
the process.A BCAToolkit covering a range decreases over tune.Therefore,for all FEMA
of major natural hazards is available at projects,the Office of Management and
www.fema.gov/benefit-cost-analysis. Budget(OMB) has a mandated discount
rate of 7 percent that must be used for
Applicants must use FEMA-approved performing BCAs.
methodologies and software to
D I SASTER RE COVE • r •
4
Since each data element of the BCA that
affects the numerical BCR must be fully and
carefully documented,it is recommendede0.
that standard FEMA methodology and
default values be used when they apply.
Some data inputs may be based on
national or typical values,while many are _M, •}
project-specific and must be documented
� 4
with local data. - - - --- ---� �-�
The base year of costs for all damages
used in the BCA must be identified and Calculating Benefits and Costs
be consistent with any technical data For every mitigation project,benefits are
provided.The base yearfor mitigation calculated by estimating future damages
project costs refers to the year that the cost and losses under two scenarios—with and
estimate was developed. without undertaking the project.
The level of protection—also known as There are two aspects of calculating
the effectiveness of the project—must benefits that are particularly important
be included.The level of protection is to keep in mind.First,mitigation projects
important because it shows when residual might reduce future damages and losses
damage would occur. —but not completely eliminate them.
Acquisition of the property is the only
The project's useful life(length of time type of mitigation project that completely
that the mitigation project will provide eliminates future damages and losses.
protection) must be consistent with FEMA's
standards,which are explained in the BCA Second,for every mitigation project,the
Toolkit. greater the damages and losses are before
mitigation,the greater the potential
In determining cost-effective mitigation benefits become.
projects,applicants are also encouraged to
consider the idea of"risk"when identifying The benefits considered in BCAs include
and analyzing projects.Risk is simply the benefits to the community,not just the
threat to the property,infrastructure and government entity orfunding source.The
people in terms of dollars.It depends on OMB's Advisory Circular A-94,Guidelines
the type,frequency and severity of natural and Discount Rates for Benefit CostAnalysis
hazards,as well as the vulnerability of the of Federal Programs,provides explicit
infrastructure and people. guidance on what benefits to count.
Conceptually,
HAZARD EVENT X PROPERTY EXPOSED = HAZARD RISK however,most of
(Frequency&Severity) TOTHE HAZARD (Dollars$$) the benefits can
be sorted into four
main categories:Physical Damages,Loss
of Function,Casualties and Emergency
Management Costs.
AD]LIST ER S I NTE R NAT IONA L.COM
1) Physical Damages are probably the Loss of Function Impact
easiest category to understand.For
buildings,contents,infrastructure, ,
INPUTS
vehicles and equipment that are IMPACT
damaged,the monetary damages
are simply the costs to repair or BUILDING(residential, Displacement costs •Displacement time
replace the damaged property. commercial,public) •Rent for temporary quarters
•Other monthly costs
Avoided physical damages are •One-time costs
expressed in dollars.Damages are ..................................................................
often expressed as a percentage BUILDING(residential Rental income lasses •Displacement time
of the replacement value of the and commercial) :Monthly rent
damaged item. BUILDING(commercial) Business income losses •Functional downtime
Wage losses •Net business income per month
2) Loss of Function pertains to losses •Wages and benefits per month
and costs that are incurred when •.•..•.•.••••.•.••.........................•••••.•••••
facilities are damaged to the point BUILDING(residential) Disruption costs •Disruption time
that normal function of the facility •Economic value per person
is disrupted.For critical community per hour
operations,the loss of function is BUILDING(public, Loss of public services •Functional downtime
often the most severe impact of a ordinary services) •Operating budget
hazard event.Therefore,it is critically ..................................................................
important to measure the potential BUILDING(public, Economic impact of loss •Functional downtime
losses and benefits correctly.(See critical services) of public service •Operating budget
adjoining chart.) - - •Continuitypremium"
..................................................................
For the loss of function category, UTILITIES Economic impact of loss •Functional downtime
historical data and professional of public services •Economic impact per capita
per day
judgment are used to develop damage ..........................I......................... ........ ... .
estimates.The loss-of-function ROADS AND BRIDGES Economic impact of road •Functional downtime
impact of a disaster on a community and bridge closures •Delay or detour time
often goes far beyond the physical •Daily:traffic load
damages alone.It encompasses the Economicvalue per person
losses,costs and direct economic per hour;.
impact that occur when physical
damages are severe enough to of Existing Benefits
interrupt the function of a facility. Themethodologyforcalculafingresidentialdtsplacementcostshaschangedfigmta
sta�dard.per squr loot volae,per month,to the,fodgmgantl meals per�dterd rates forthe
Types varyingimpacts, comm�tntty as determttted by the General Services Admmistratton(GSA)or Dep...ft t of
T es of losses have vaC in fx 1s
depending `on the type `J'a of facility �llefense The na�rt restdenttaf displacement costs me��odology i`s uncFtanged"'`
being evaluated.Some sub-categories
of the loss-of-function impact are
*Continuity premium is a multiplier on the ordinary value of services that applies to services critical to
more difficult to understand and immediate disaster response and recovery.
(Continued on page 7) SOURCE: FEMKs"Whatis a Benefit"Guidance on Benefit Cost Analysis ofHazord Mitigation Projects
Draft Rev 2—May 2001
calculate than obvious physical
damage.The most common are:
Statistical Standard Values or
• Displacement costs for temporary Willingness to Pay
quarters
• Loss of income(residential or Natural disasters commonly result in casualties—including deaths,
business) injuries and illnesses.Casualties are the most devastating impact of
• Lost wages a disaster.Like other benefits,the benefits of avoided casualties are
• Disruption time for residents calculated asthe difference in casualties occurring before and after
• Loss of public services mitigation.FEMA uses statistical valuesto place a monetaryvalue on
• Economic impact of loss-of-utility the benefits of avoided casualties.FEMA Benefit Cost Analysis statistical
services standard values were derived from 2008 FAA"Willingness to Pay"values.
• Economic impact of road/bridge InVersion 4.8(dated 2009)theywere as follows:
closures Death $5,800,000.00
Hospitalized $1,088,000.00'
For the economic impact of road and Treat&Release $ 90,000:00
bridge or utility interruptions,FEMA Self Treat ` $ 12,000.00"
applies specific rates.A per-vehicle, - (FEMA Will updatethese waluesperiodtcally)
per-hour rate is applied to detours and
a per-person,per-day rate to utility Updated Ll'fe safety Benefitvalues
interruptions.
For 2Q.15,the Value of 5tat�strcal Lrfe(VSL)equ�valenC was increased to
$6 6 mrlhon The economicvaluesofEnlurres avortletl Escalculated differently
3) Casualties include deaths,injuries ,` ` _ e
J in the BCA modules,whrch rncla a casualty values but are scaled afFofthrs
and illnesses.Whenever a specific { z � �� .x, •u ��
p newfiblity rate
mitigation project demonstrably
reduces the potential for future
casualties,it is proper and SOURCE: FEMA'sBCA roolkit4.8-2009
necessary to count the benefits of
reduced casualties. y
While there is discomfort in placing
a dollar value on human life,it is
sometimes necessary to valuate
the cost of saving lives.Economists 2 .
recognize h i i
g e at i s t impossible to fund
f
every project that has the potentialPM "R � -
u g y1'
to save a life and that a rationalx;
.' basis is needed to select which such
projects are approved and which
are turned down.Understanding
up front that reducing the risk of mho
death stands to be a project benefit
can defuse these controversies
a
(see Statistical Standard Values or '" a
Willingness to Pay table).
� r
the only benefits that were used in
4 determining the cost effectiveness
of repair-related mitigation.
FEMA funded $279 million worth
of work to replace eight lift stations
with the same function and
capacity,relocating them above
the flood plain and the flood of
4) Emergency Management Costs record,on their original sites as
include a range of disaster response cost-effective hazard mitigation
and recovery costs that may be measures to avoid future costs
incurred by communities during to the federal government.More
and immediately after a disaster. information can be found at
www.fema.gov.
Disasters commonly result in a
range of emergency management Other Considerations
costs for affected communities. Additional considerations for ECAs are
These include the costs of just now coming into use.Recipients must
emergency operations centers, remember to document and support
evacuation and/or rescue,security, environmental,social and other non-
temporary emergency protective traditional benefits.
measures,debris removal,and other • Environmental Benefits—for
costs associated with response and acquisition/relocation projects,
recovery.If a mitigation project environmental benefits(or ecosystem
under evaluation significantly services)for a parcel being acquired
reduces these costs,then the may be included in certain situations.
benefits should be counted. • Social Benefits—for the cost of mental
health treatment and lost productivity
One example is the belowground for BCA modules that did not already
Waste Water Lift Stations in New include a value for this calculation(i.e.,
Orleans damaged by Hurricane flood,hurricane and wind).
Katrina.Damage to eight lift stations • Non Traditional Benefits—other
resulted in the federal government benefits now applicable to certain
funding pumping and hauling mitigation projects traditionally outside
wastewater for several years of BCA guidelines include:
(Category B Grants).The hazard o Volunteer Costs—projects that
mitigation was determined to be will result in future reduction in
cost effective.The future benefits volunteer costs can now include
were based on federal benefits this benefit.For example,costs
that avoid costs by the federal for volunteers who fight floods or
government that will not have to be do sandbagging around a water
paid because of the mitigation.The treatment plant can be included as
repair and other avoided costs are a benefit for a mitigation project
DISASTER r rr r
that reduces or eliminates the eliminates the need to carry a
need for flood-fighting efforts. flood insurance policy or reduces
o Street Maintenance Costs—for the claim administration burden
larger acquisition or relocation can utilize this benefit.
projects,benefits can now be
included for future street Also of Note
maintenance costs that are avoided Other published studies conducted or
if the infrastructure is removed. recognized by states,territories or tribes
o NF1P Administration and Claim can be utilized,but must be provided
Costs—for general administration as part of the project application for
and cost to administer regular verification.These new methods will
and Increased Cost of Compliance facilitate better preparation of a BCA
OCC)claim for each policy.Any for Hazard Mitigation Assistance,Grant
flood mitigation project that Applications and recognizing additional
benefits not previously considered.
ADDRESSING FLOODS AND RELATED ISSUES
Latest Toolkit Measures Sea Level Rise `.
N
FEMA's latestToolkit(version 5.1)includes a Sea Level Rise(SLR)measurement.The new kit provides a place
for users to enter the estimated Sea Level Rise for their project location.The estimated sea level rise elevation
will be added to the current 10-,25-,50-,and 100-year flood elevations for the area in the Toolkit. .;
WARNING:..
There is no mandate for the inclusion of estimated Sea Level Rise for HMA applications,but a relative SLR can ;;M3 SEA LEVEL.
be included in flood elevations when conducting ECAs in coastal areas,using a full-data flood module.WhenRISES
performing structure elevation projects that have freeboard requirements,SLR estimates should be added to
the freeboard requirements that may have been adopted in local or state building codes.Freeboard is a safety sty ,
factor usually expressed in feet above flood level for the purpose of floodplain management. `
A grantee or applicant may use any valid source that is based on recognized SLR estimation methods.
There are several federal government sources of relative SLR data along coastal areas,including: z a
• NOAA Ce for Operational Oceanographic Products and Services Mean Annual SLR Trend lata }
r' y
noaa gov k
IiSACECIrmate Change Atlap#ion Sea-level Change Curves h ��x�
rcorpschmate us
y ,�
Giabalchange gov provides datJ
a more specific to New ersa
ey nd N6,N
5 rr
SOURCE: FEMA FAQ sheet—Incorporating Sea Level Rise into Hazard Mitigation Assistance(NMA)OCA FAQs—December 2013
,D
Then it identifies,quantifies and subtracts
Conclusion all the negatives.Those are the costs.The
Whether you know it as a benefit cost difference between the two indicates
analysis or a cost benefit analysis, whether the planned measure is advisable.
conducting one is critical to any hazard Even though the project may be deemed
mitigation project.When you perform a ineligible,it may still be prudent to forge
BCA,you make a comparative assessment forward.The trick to doing a BCA well,is
of all the benefits you anticipate receiving making sure you include all the costs and all
from your project and all the costs associated the benefits—and properly quantify them.
with introducing it,completing it and
addressing the challenges the project brings. Regardless of which grant program a sub-
applicant is applying to,the application
A BCA finds,quantifies and adds all the must present the project's clear benefit(s) if
positive factors.These are the benefits. it is to be successful.
FEMA Benefit Cost Analysis Re-Engineering (BCAR)
FEMA`s decision to re-engineer the existing BCA software was frequently used module for FEMA`s Hazard Mitigation Assistance
made tomeet the technical needs of today's user and address (HMA)grant applications.
advances in hazard assessment methodology,as well as in FEMA
policy.To accomplish these objectives,FEMA met with more than The DFA module analyzes proposed mitigation projects based on
300 users to gather data,feedback and comments.This input damages(either historical or anticipated)and the future damages
contributed to an integrated software package that provides that would be avoided.This is extremely helpful when no FEMA
current information and user guidance to a once-complex process. Flood Insurance Study is available.The DFA module is commonly
It has also resulted in a streamlined approach for meeting FEMA's used to analyze storm water management and drainage
cost-effectiveness requirements for hazard mitigation projects. improvement projects,but may also be used to analyze a wide
range of hazards including floods,landslides,snow/ice storms
The goals were to develop and earthquake mitigation for utility projects.The DFA module is
methodologies that are based recommended in place of the flood module when key structural
on well-defined scientific and information such as the base flood elevation(BFE)and/or Flood
engineering principles,that. Insurance.Rate Map(FIRM)is not available.
accurately represent structural
performances,and that simplify Another important use for the DFA module is the secondary
the analysis process for the" analysis for mitigation projects that do not result in a BCR of 1.4 or
average user Theintent ofthe greater n'the flood module Ifthe:l3CR m theflaod module is less
BC,4 rriadule remains the same than 9:0 for a project but 10 or greater using the DFA.module,the "
0 complete and well documented DFA module may be subm�tte�m
Also re engineered`was the l united Data nodule Itwas replaced a project grant application An explanation ofwhyrthe D1 A modrale
s '�w�tE�the Damage FrequencyrAppr6ath(DFA)module,which 7 wase ed in heu'ofthe fullflood module should be proV�ded
3
ty rs is moreflexibfeafitMe fl od module ani therefore th"°most r` ,
% .;Sat.t, n�*..' s t
W `� ,.X,a;:, '.�3. "J. < yJ,�» w. yY- -' �'%o �'"'.'s�F''Svr
sf_p r � r ? �� 0— F 3
e
SOURCE: FEMA'sBCAReference Guide2009
10 DISASTER RECOVERYTODAY.COM
Selecting Between the DFA and Flood Modules
for a Flood Mitigation Project
Identify-t of,pio(�o�e
flootl�iti �t o ��Cb�
Is flood
mitigation project ; f" ,� No
property aeqursltlorT elevatlo
retrofit or#I`aod y
YES
Do you hays':: ;;: <,:,. NO
flood hazardciata fr
(...
r��u�
YES
Is the
first floor elevation NO lJse`tt�e �F
(criown for al DF,4ac '
Stt'UCtL1reS �� �r.
YES
Flooding •
R�verine floodlrig 'ap - Coastal#lood�ng
Do you have NO NO Do you.have l i'�
a flood profile delfrie,t 'j std[v�ratet '
eievatlbris�'�• ��' •
elevatfa"sal
C
< T
ti en
YES C)FA- p YES
Do you have ' NO NO Do you have :.;
the strearbe; the base flas �
elevaflan���� eEeya#o
YES YES
u " i,6 Flom odtal
s:ra*?<Y
5 0 U R C E: "Supplement to the Benefit-Cost Analysis Reference Guide,fema.gov—lune 2011
(FIS-Flood Insurance Study;H&H---Hydrologic and Hydraulic)
,��jJ