HAZARD MITIGATION
FOR NATURAL DISASTERS
A Starter Guide for Water and Wastewater Utilities
Implement and
Fund Project
Mitigation Case Study
oEPA
Select a menu option below. New users should start with Overview Hazard Mitigation.
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Overview
Hazard Mitigation
Overview - Hazard Mitigation
Join Local
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Implement
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Hazards Posed by Natural Disasters
Water and wastewater utilities are vulnerable to a variety of hazards
including natural disasters such as earthquakes, flooding, tornados, and
wildfires. For utilities, the impacts from these hazard events include
damaged equipment, loss of power, disruptions to service, and revenue
losses.
Why Mitigate the Hazards?
It is more cost-effective to mitigate the risks from natural disasters than it
is to repair damage after the disaster. Hazard mitigation refers to any
action or project that reduces the effects of future disasters. Utilities can
implement mitigation projects to better withstand and rapidly recover
from hazard events (e.g., flooding, earthquake), thereby increasing their
overall resilience.
Mitigation projects could include:
• Elevation of electrical panels at a lift station to prevent flooding damage.
• Replacement of piping with flexible joints to prevent earthquake damage.
• Reinforcement of water towers to prevent tornado damage.
Mitigation measures require financial investment by the utility; however, mitigation could prevent more costly future
damage and improve the reliability of service during a disaster.
Disclaimer: This Guide provides practical solutions to help water and wastewater utilities mitigate the effects of natural disasters. This Guide is
not intended to serve as regulatory guidance. Mention of trade names, products or services does not convey official U.S. Environmental Protection
Agency (EPA) approval, endorsement or recommendation for use.
Earthquakes
Drought \ Wildfires
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Overview
Hazard Mitigation
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Join Local Mitigation Efforts
Local Mitigation Efforts and Plans
Your local community is likely already involved in efforts to mitigate the
effects of natural disasters. In fact, most state and local governments
have existing hazard mitigation plans. A hazard mitigation plan
summarizes the overall strategy for a community to reduce losses and
break the cycle of recurring damage.
The mitigation plan typically summarizes each hazard (both risks
and vulnerabilities), sets clear goals for being disaster resilient, and
identifies a list of appropriate mitigation actions that the community
wants to take. Having a plan is aiso a requirement for the local and
state government to be eligible for certain types of federal funding for
mitigation actions.
Value for Water and Wastewater Utilities
Becoming involved in local hazard mitigation planning has a two-fold
benefit for water and wastewater utilities.
• First, utilities will be helping their communities become more
resilient against identified natural disasters.
• Second, utility projects that are part of the hazard mitigation plan
are eligible for external funding opportunities, such as federal
grants and loans.
So how can utilties become involved?
£EPA
OKALOOSA COUNTY
LOCAL MITIGATION
STRATEGY
PREPARED BY OKALOOSA LOCAL MITIGATION STRATEGY COMMITTEE SEPTEMBER 2010
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oEPA
Overview
Hazard Mitigation
Join Local Mitigation Efforts
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Partner with your Local Mitigation Planner
Talk to your local mitigation planner because he or she is responsible
for developing the hazard mitigation plan to decrease the risk to your
community from various hazards. Since your utility is critical to the
community, your local planner wants to help you mitigate hazards and list
your proposed mitigation projects in the local plan.
• How do I contact my Local Mitigation Planner?
o Contact your State Hazard Mitigation Officer. Ha who can then
connect you to your county or local mitigation planner.
• What should I say to the Local Mitigation Planner?
o Introduce yourself and express interest in learning more about mitigation efforts.
Click for Other Helpful Local
Partners in Hazard Mitigation
o Ask about what hazards are of most concern and what local mitigation efforts are currently underway in your
town, city, or county.
o Share your concerns about certain hazards and possible mitigation actions you are considering.
o Ask how your utility can be included in the next local mitigation plan update (5-year cycle for updates).
o Ask how your utility can become involved: how you can become a participating member in the local hazard
mitigation process; are there upcoming meetings; can your utility participate in the update process and provide a
mitigation project to list in the plan?
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oEPA
Other Local Partners in Hazard Mitigation
Mitigation
Case Study
in addition to the local mitigation planner, you have the option of using other partners to also help you
identify the hazards to your utility and how best to mitigate them.
• Local Municipal Officials - The town engineer and staff in the Community Development or Emergency Management
Department can assist with researching historical disaster information and identifying grant funding for the hazard
mitigation projects.
• Experts with Knowledge of Specific Hazards - This could include a Certified Floodplain Manager (CFM), state
geologist, and state or local fire marshal. For example, a CFM knows how to reduce flood losses and locate Flood
Insurance Rate Maps.
• Professional Engineers (PEs) - PEs can help identify hazards and assist with the design of hazard mitigation projects
(e.g., scope of work, timeline and costs).
• Building Inspectors - Building inspectors ensure that your utility hazard mitigation project is within local and state
building codes.
• Chamber of Commerce or Economic Development Coordinator - These officials can help justify your mitigation
project by providing data on projected economic losses to the community from disruptions to drinking water and
sewer services.
• Neighboring Utilities - Consult with neighboring utilities to determine if they experience similar hazards and if there
are potential joint mitigation projects that can reduce impacts across multiple communities and the region.
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Overview
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Coordinate on Mitigation Projects
With the help of your local mitigation
planner, get involved in mitigation
planning. Design equipment and
processes with mitigation in mind.
Also, identify utility-specific mitigation
projects and see how the projects
may fit into overall community efforts.
For example, community mitigation
efforts that affect stormwater (e.g.,
rain gardens, green infrastructure) may
reduce the potential flooding at your
wastewater utility.
Get Your Mitigation Projects Listed
in the Local Mitigation Plan
Utility mitigation projects that are listed
in the local mitigation plan become
eligible for federal funding. Focus on
projects that have significant impact for
your utility and community. Work with
your local mitigation planner to provide
the needed information. See the example shown
on this page of a proposed utility flood project
listed in a local mitigation plan.
Okaloosa County Local Mitigation Strategy Project Summary Sheet
Project Name: Main Island Lift Station Replacement
Jurisdiction: Okaloosa County Contact Person/Information: Mark Wise. P.E. - Engineering Manager
1. General Description and Rationale
New lift station to replace existing one. In previous
hurricanes, this lift station has been submerged, causing
public safety problem. It is one of our largest (1 MGD
ADF), oldest, and most critical lift stations It also has
structural & elevation problems.
Timeframe for Completion: 2 years
2. LMS and Jurisdictional Comprehensive Plan Compliance/References:
2.a. LMS Goals and Strategies: Goal 5 - Reduce or eliminate hazards identified to at risk locations in the County and its
municipalities by implementingthe mitigation actions.
2.b. Comprehensive Plan: Goal 1 of Section 2.4: Provide environmentally safe and efficient waste water treatment and
disposal systems. This project is also in OCWS' 5-year C.I.P.
2.c. Is this project level of service or concurrency related: LOS X Yes No Concurrency X Yes No
3. Budgetary Information: Is this project listed in the adopted 5-Year Capital Improvements
Program? X Yes No
3.a. Estimated Project Cost: S3.400.000.00
3.b. Funding Plan ($ in 000's)
Is this project fully funded?
Yes X No
Source
Allocated
in Prior
FYs
FY11
FY 12
FY 13
FY 14
FY 15
Total
OCWS Enterprise
Fund (unfunded).
0
0
0
0
0
0
0
0
3.c. Expenditure Plan ($ in 000's)
Item
Prior FY
Expend.
FY 11
FY 12
FY 13
FY 14
FY 15
Total
Main Island Lift
Station - OCWS 5-
yearC.I.P
0
400
3000
0
0
0
3400
$3,400,000
4. Statement of Operating Budget Impact This project is in the C.I.P.. but unfunded. To accomplish
this, O.C.W.S. would need to borrow money, in which the debt service would be ultimately passed
on to our customers, and possibly a rate increase would be needed.
5. Location Map: On Okaloosa Island, west of the intersection of Santa
Rosa Blvd. & Miracle Strip Parkway.
Example Wastewater Mitigation Project
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Earthquakes
Power Outage
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Develop Mitigation Projects
Steps
Click the icon to the right to learn about the
four steps to develop mitigation projects.
Mitigation Resources by Natural Disaster
Click below to explore specific resources and mitigation examples for each disaster or disaster impact.
Flood Earthquake Drought
Wildfire
Tornado
Power Outage
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Earthquakes Jtj \ k_ Draught ^
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Steps to develop mitigation projects
Step 1. Understand the Threat Posed by the Hazard.
How serious is the natural hazard event that you face? For
example, determine how high the floodwaters could be
based on historical flood data (frequency and severity) of
past events, or based on projected levels.
Step 2. Identify Vulnerable Assets and Determine
Consequences.
How will the disaster affect your utility? For example, what
pipes, treatment processes, storage tanks, and power
supply could be damaged during an earthquake? Also,
what are the consequences including damage, repair
costs, service disruptions, public health advisories, and
environmental impacts?
Step 3. Identify and Evaluate Mitigation Projects.
A mitigation action or project can reduce or eliminate the
damage to equipment and disruption in service. Resources
and examples to develop mitigation projects for various
natural disasters are provided on the following pages.
XV EPA
Mitigation actions are generally evaluated against multiple
criteria including effectiveness, practicality and cost. See
the Federal Emergency Management Agency (FEMA)
STAPLEE Method hb for a benefit-cost review. Also, FEMA
has identified several mitigation methods a that are pre-
determined to be cost-effective for water and wastewater
utilities (e.g., elevate instrument panels, buttress
raw water intakes, replace inundated pumps with
submersible or inline pumps, as appropriate).
Step 4. Develop a Plan to Implement the Mitigation
Project.
The plan should identify who is responsible for taking
actions, what are the costs and funding sources (e.g., grant
funds, capital expenditures), and what is the timeframe
of completion. Depending on the size and cost, some
mitigation actions may be completed through internal
routine work orders, capital improvement planning, or
supplemental funding. Best practices have shown that
using multiple funding avenues are most effective.
> Return to Develop Mitigation Projects
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Overview
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Flood Mitigation Resources
Resource
Description
Flood Resilience: A Basic Guide for
User friendly guide with videos and interactive checklists to help utilities go
through a 4-step process to assess floods and develop mitigation projects.
Guide is targeted to small and medium utilities. (U.S. Environmental Protection
Agency [EPA])
Water and Wastewater Utilities
Storm Surge Inundation and Hurricane
Strike Freauencv Map
Maps of current worst-case coastal storm surge (abnormal rise of water
generated by a storm), 100 and 500 year flood plains, and direct and indirect
strikes from all hurricanes. (EPA)
Incident Action Checklist - Flooding
Checklist of activities that water and wastewater utilities can take to prepare
for, respond to and recover from flooding. (EPA)
Flood Mitigation Examples
• Elevate or protect electrical service panels.
• Upsize culverts to better handle flood surges.
• Replace pumps with submersible or inline pumps.
• Protect facilities with flood proof doors, and
barriers or sandbags.
• Buttress raw water intakes to prevent damage
from erosion, scour and flood debris.
• Relocate equipment outside floodplain.
(
1
Elevate wellhead
Elevate electrical panel
Earthquakes
Drought \ Wildfires
Power Outage
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Floods
Earthquakes
Drought
Tornados
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Resource
Description
Recent Earthquakes: Implications for
U.S. Water Utilities! M
Potential impacts of earthquakes on water utilities and the effectiveness of
seismic upgrades of tanks, buildings, equipment and pipes. (Water Research
Foundation)
Oreeon Earthquake Resiliency Plan
Mitigation measures for the anticipated Cascadia Earthquake. Chapter 8
addresses Water and Wastewater Systems. (Oregon Seismic Safety Policy
Advisory Commission)
Seismic Guidelines for Water Pipelines
Overview of how to design and install pipelines to mitigate damage from
earthquakes. (FEMA and the National Institute of Building Sciences)
Seismic Vulnerability and Impact of
Disruption of Lifelines in the
Conterminous United States.w
Overview of seismic vulnerability, impacts and mitigation measures for lifelines
such as water systems. (FEMA)
Incident Action Checklist - Earthquake
Checklist of activities that water and wastewater utilities can take to prepare
for, respond to and recover from earthquakes. (EPA)
Earthquake Mitigation Resources
Earthquake Mitigation Examples
Seismic retrofit pipes with flexible joints.
Secured pipes Reinforced basin
> Return to Develop Mitigation Projects
Page 4 of 8
Reinforce settling tanks.
Harden or replace transmission lines with
earthquake resilient designs.
Secure aboveground pipes.
Install earthquake shutoff valves.
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Overview
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Drought Mitigation Resources
Resource
Description
Drought Response and Recovery Guide
for Water and Wastewater Utilities
Guide for utilities preparing for, or facing, droughts. Includes worksheets and
case studies to guide response and mitigation actions. (EPA)
M60 Drought Preparedness and
Response ms
Manual to help water managers facing water shortages by illustrating how
to employ tried-and-true strategies and tactics of drought mitigation.
{American Water Works Association)
Planning for Emergency Drinking Water
Supply
Overview of how to deliver clean drinking water in the event of a disaster.
Includes case studies and descriptions of alternate delivery methods. (EPA)
Drought Management Plan - A Template
Guide for small systems to prepare for water shortages and implement
drought mitigation procedures. Includes sample ordinances and utility
policies. (Florida Rural Water Association)
for Small Systems Ml
Incident Action Checklist - Drought
Checklist of activities that water and wastewater utilities can take to prepare
for, respond to and recover from drought. (EPA)
Drought Mitigation Examples
• Haul in water with tanker trucks permitted to
carry potable water.
• Implement a leak detection and repair program
to reduce lost water.
• Consider interconnections with other water
sources and systems.
• Place restrictions designed to reduce or eliminate
non-essential uses.
water
]
Emergency water
Utility interconnections
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Earthquakes
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Wildfire Mitigation Resources
Resource
Description
Effects of Wildfire on Drinking Water
Utilities and Best Practices for Wildfire
Risk Reduction and Mitigation n
Explanation of how wildfires affect water and wastewater services. Includes
how to mitigate risk including forest management strategies and hydrologic
effects of wildfires. (EPA and Water Research Foundation)
Fire Management Planning for Public
Water Svstems ua
Advice for developing a fire management plan. Includes links to other
wildfire-related resources. (Colorado Department of Public Health and
Environment)
Active Fire Mapping Program 5Si
Interactive map of active wildfires across the United States. (US Fire Service)
Incident Action Checklist - Wildfire
Checklist of activities that water and wastewater utilities can take to prepare
for, respond to and recover from wildfires. (EPA)
Wildfire Hazard Mitigation Handbook for
Public Facilities ih
Handbook of mitigation measures identified for pipes, pumping stations,
treatment facilities, wells, chemical tanks and power supply. (FEMA)
Wildfire Mitigation Examples
Remove debris, trees or other fire-hazard
materials.
Institute high fire danger procedures such as
smoking bans and fire bans.
Earthquakes
install fire resilient building materials.
Modify treatment process for sediment in water.
Before and after removal of at risk structures and debris
Power Outage
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Overview
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Power Outage Mitigation Resources
Resource
Description
Power Resilience Guide
User-friendly guide to help utilities identify how to increase their resilience
to power outages. (EPA)
Is vour Water or Wastewater Svstem
Prepared? What vou need to know
about Generators
Explanation of how to integrate generators into a utility's emergency
response operation. Includes an explanation of different types of generators.
(EPA)
Implement
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Power Outage Mitigation Examples
• Purchase or rent a backup power generator.
• Maintain fuel on-site or have multiple ways to
obtain fuel.
• Secure generators against wind, water and
seismic activity.
• Talk to the power company and emergency
management agency to get priority restoration.
I
Acquire generator
Elevate generator
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Implement and Fund Projects
Below are tips for developing a mitigation strategy to implement and fund projects.
Implement
and Fund Project
Tip #1 - Develop an implementation strategy that includes:
Steps and approvals needed for implementing mitigation projects.
V Responsible parties for taking actions.
Costs and funding sources (e.g., grant funds, capital budget).
V The timeframe of completion.
Mitigation
Case Study
Tip #2 - Consider benefits of internally funding the mitigation projects:
•s Gives control over carrying out a mitigation project (e.g., work order performed by utility personnel).
S Actions are not limited by grant requirements (e.g. FEMA requires building to certain flood elevation levels).
•s May provide justification to the utility board of directors to raise rates for needed mitigation.
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Implement and Fund Projects
Tip #3 - Incorporate the hazard mitigation projects into various documents to build technical and
community support and budgeting:
•f Utility's Capital Improvement Plan (CIP) or similar document.
S Local Hazard Mitigation Plan. Projects become eligible for certain FEMA funding.
•f Community Comprehensive Plan.
Mitigation
Case Study
Tip #4 - Find out about state or federal funding:
Talk to your local mitigation planner and State Hazard Mitigation Officer (SHMO) about state or federal funding.
State funding may be more accessible.
Talk with other state officials (e.g., transportation, environmental protection) to see if your mitigation project can be
linked to future projects.
o For example, if your utility has a flood-prone lift station within a road right-of-way, complete your mitigation
project at the same time as a proposed state or county roadway widening project.
No project is too big or too small for state or federal funds. Consider proposing a range of mitigation projects from
short-term (minimal planning and resources) to long-term (significant planning and resources).
Consider grouping similar mitigation projects to get greater community-wide benefits, or take the opposite
approach, separating a larger project into smaller, individual projects to improve the benefit-cost ratio and take
advantage of smaller funding amounts that are available.
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Overview
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Join Local
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Federal Funding for Mitigation Projects
There are several federal funding programs that can be
used for mitigation projects. Receiving funding often
requires diligence, good connections with local mitigation
planners, and a strong project candidate and application.
Fed FUNDS. To help utilities understand and obtain federal
disaster and mitigation funds, EPA developed Fed FUNDS.
Fed FUNDS can help you quickly screen for applicable
funding programs from U.S. Department of Housing and
Urban Development (HUD), U.S. Department of Agriculture,
Small Business Association, FEMA and EPA. It also provides
examples of successful utility applications and tips to get
funding.
FEMA's Mitigation Funding Programs. FEMA has four
individual programs to fund mitigation projects:
• Public Assistance (PA) Grant Program*, m
• Hazard Mitigation Grant Program (HMGP). Eg
• Pre-Disaster Mitigation Program (PPM), and a
• Flood Mitigation Assistance Program (FMA). «•
Each program has specific project eligibility and funding
requirements. Publicly owned and operated utilities are
eligible for all programs, while private non-profit utilities
have limited program eligibility. Typically, the proposed
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Drought \ Wildfires
Power Outag
£EPA
mitigation projects must go through a cost-benefit analysis
and show clear benefits. Also, FEMA grants usually cover
75 percent of the costs and require a 25 percent state and
iocal government match. The 25 percent match could
consist of a utility's personnel time and effort instead of
actual funds. Also, other grants (e.g., HUD Community
Development Block Grant) often can be used for the 25
percent state or local match.
FEMA's HMGP is the primary source of funds for
communities to implement hazard mitigation projects
following a Presidential Disaster Declaration. To be eligible,
utilities must be part of a locally adopted and FEMA-
approved Local Mitigation Plan. Specific projects should
be listed in the plan.
See sixteen examples of FEMA-funded projects for water
and wastewater utilities that participated in local mitigation
planning.
* After a Presidential Disaster Declaration, damaged water and
wastewater facilities may be eligible for these grants to repair and
potentially mitigate the damaged portions of the facility.
Use Pre-Disaster Use During a Disaster Use Pre- or Post-Disaster
\L
Which Funding Is
Right for You?
Currently in a Disaster?
Federal Disaster
Funding Programs
§
Be Prepared to Tap
into Funding
Here are forms to document
the damage, costs, and repairs.
W!
Utility Examples,
Training, & Assistance
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Mitigation
Case Study
Mitigation Case Study
The approach used in this Guide, which can be applied to a variety
of natural disasters, was used in a case study to mitigate flood risks
to water and wastewater utilities in the Florida Panhandle. In 2015, EPA sponsored an
effort to promote flood resilience in three Florida counties (Escambia, Santa Rosa, and
Okaloosa Counties) that suffer from hurricanes, heavy spring rains and coastal flooding
EPA's partners included the Florida Division of Emergency Management-Bureau of
Mitigation, Florida Department of Environmental Protection, Florida Rural Water
Association, FEMA, and local mitigation planners and utilities in the three counties. The
effort involved two workshops and several site visits to the utilities.
A key goal for the workshops was for utility staff to meet and coordinate with their local and
state hazard mitigation planners. After sharing their flooding experiences and concerns, utility staff
then brainstormed with mitigation planners on how to best mitigate flooding impacts.
During site visits to the three utilities, staff identified specific flooding threats, determined impacts
to utility assets, and recommended practical mitigation options to protect those assets. With
the help of the local mitigation planners, the utilities learned how to incorporate their proposed
mitigation projects into the county's local hazard mitigation plan and, consequently, be eligible for federal funding.
Sample mitigation projects for the three utilities included elevating instrument panels, creating a wall around influent
headworks, reinforcing an embankment, and relocating a lift station. Utility staff also learned about implementing and
funding mitigation projects, and received tips on building effective applications for federal funds.
Earthquakes
EPA Office of Water (4608T) EPA 810-B-16-002 June 2016
Drought \ Wildfires
Power Outage
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