Navigating Floodplain Administration
A Conversation on Floodplain Management
Key Takeaways:
- Floodplain administration is crucial for resilient development. It blends public safety, environmental sustainability, and infrastructure planning to reduce risks and protect investments in growing communities.
- Smaller cities face resource challenges. Many lack full-time floodplain experts, often relying on multi-role staff or outsourcing to professionals for compliance and strategic guidance.
- Smart management leads to economic resilience. Thoughtful floodplain regulation attracts investment, reduces peripheral costs, and ensures faster recovery from natural disasters.
April showers bring May flowers, and as this month kicks off our rainy season here in the Midwest, we sat down with Katie Handley-Stucky, GBA Water Environment Associate, and Joe Kmetz, GBA Building Code Services Lead, to discuss floodplain management and explore the challenges municipalities may face. They answered important questions about floodplain regulations, how floodplains impact infrastructure and buildings, and the balance between compliance, growth and affordability. With their expertise, Katie and Joe provide insights into how communities can navigate these complexities and how GBA can help.
What is a floodplain/floodway?
Katie:
A floodplain is an area of land that is prone to being inundated by floodwaters from any source. A floodway is a specific part of the floodplain designated as crucial for carrying floodwaters. The floodway is considered the most important area for floodwater conveyance and often has stricter restrictions to prevent building or development, playing a key role in reducing flooding risks both upstream and downstream. Both floodplains and floodways are considered Special Flood Hazard Areas (SFHAs).
Every community can have different requirements when it comes to floodplains, from unmapped communities that do not have defined floodplains to communities that go above the minimum floodplain management requirements. The latter are part of a Federal Emergency Management Agency (FEMA) program called Community Rating System (CRS), which provides incentives for the extra miles the communities will protect from flooding.
With each community potentially having a different set of standards they manage, it’s important to understand the intricacies of these standards and the reason they’re in place. Floodplains provide a valuable function in storing floodwaters and slowing runoff, reducing the risk of flooding. They frequently contain wetlands and other important ecological areas that protect wildlife habitat, maintain surface water quality, support groundwater recharge and create recreational opportunities. benefit wildlife habitat protection, surface water quality maintenance, groundwater recharge and recreational opportunities.
Joe:
I don’t have much to add to Katie’s comments. I will say that what I’ve seen most is that cities that are either large in size or are growing at a rapid rate have a huge need for someone to be the “pilot at the helm,” paying close attention to floodplain development. Oftentimes, this can be done by someone with an adjacent set of expertise, such as a building official, planning director, public works director or similar. This approach works well with low-effort and low-frequency floodplain development proposals.
Why do floodplain regulations exist, and how have they evolved over time?
Katie:
Development within the floodplain can result in adverse effects to the floodplain, including the degradation and loss of natural functions, and has both direct and indirect detrimental effects on the quantity and quality of floodplain habitats. For these reasons, and to reduce structure losses, floodplain regulations were created.
The National Flood Insurance Act of 1968 created the National Flood Insurance Program (NFIP), which identified local flood hazard areas. This act prohibited FEMA from providing flood insurance in a community unless that community adopts and enforces floodplain management regulations that meet the NFIP standards. In 1973, comprehensive revisions went into effect and included more detailed criteria for community floodplain management.
Floodplain mapping and regulations evolved through the years, starting with USGS Mapping, which used approximate boundaries developed on USGS maps; shifting in the 1970s to HEC-1, developed by the Hydrologic Engineering Center (HEC) of the U.S. Army Corps of Engineers (USACE); and then switching to HEC-RAS (Riverine Analysis System in 1995. Initially, these computer programs modeled the river system and floodplains in one-dimensional (1D) flow, assuming that conveyances, velocities and physical forces and variations are only significant in the direction of the stream, deeming those in the lateral directions negligible. Therefore, these models used cross-sections placed perpendicular to the flow direction.
However, recent updates to modeling software have enabled the use of two-dimensional (2D) modeling. 2D modeling accounts for transverse components, depicting where the flow can move in two or more directions.
The vast majority of hydraulic modeling underlying the special flood hazard areas are steady-state flow, 1D hydraulic models. However, in recent years, there has been an increasing number of unsteady flows, and 1D and 2D hydraulic models have been prepared to support revisions to the NFIP’s special flood hazard areas.
Development within the floodplain can result in adverse effects to the floodplain, including the degradation and loss of natural functions, and has both direct and indirect detrimental effects on the quantity and quality of floodplain habitats.
Floodplain administration sounds more like a civil aspect. How does this relate to vertical built environment?
Joe:
Floodplain administration plays a crucial role in building and planning reviews by ensuring structures are designed to withstand flood risks, protecting life and property. These regulations exist to mitigate flood damage, evolving over time with better data and disaster experiences. The residential code (IRC) and the building code (IBC) have very specific measures in place to limit the loss that may occur if an incident were to occur in a floodplain. Think of the civil portion of this discussion as “when flooding may occur” and the building requirements as “how to limit impact to structures.”
What are the key challenges cities face when navigating floodplain regulations?
Not every city needs someone dedicated to the role of floodplain administrator, but often, depending on a number of factors, it is a responsibility that requires a lot of time and effort.
Joe:
It certainly isn’t exclusive to floodplain administrators that there is a great need for and a void of qualified folks to perform this duty. Although this may often be a city engineer or a building official, a city may not have access to someone with enough experience and know-how to perform the duty. From what we can see, it is a real challenge out there. Not every city needs someone dedicated to the role of floodplain administrator, but often, depending on a number of factors, it is a responsibility that requires a lot of time and effort. In my opinion, this much-needed role is squarely in the category of “an ounce of prevention equals a pound of cure.” Time spent on good planning and review will save time, effort, funds and headaches for all parties involved—public and private alike.
Both Katie and I agree that this topic is so incredibly important for every community to get right.
Katie:
Every community participating in the NFIP is required to designate a local floodplain administrator by either position or title. The primary duty of the floodplain administrator is to enforce the floodplain ordinance in Special Flood Hazard Areas (SFHAs) and maintaining records of changes to water surface elevations in those areas. Oftentimes, cities either do not have a floodplain administrator or the official working as the administrator is wearing multiple hats, so to speak. If an official is not working with the floodplain day in and day out, it can lead to inefficiencies when knowledge of the floodplain and its regulations come up.
When a city lacks the technical floodplain expertise or they do not have a floodplain administrator, problems can occur¬—ranging from increased flooding and building damages, to FEMA removing the community from the flood insurance program to loss of life.
Luckily, communities can go two routes to ensure that their floodplain administrator understands the regulations and can keep the community in compliance. The first is for the official to go through the Certified Floodplain Manager program. This program provides a process to develop and test professional competence in floodplain management and requires continuing education to maintain the certification, which involves keeping up to date on changes in federal and state regulations, legislative requirements and knowledge of the NFIP and floodplain management. Another approach is to hire a consultant with the expertise to fill this role when needed by the community.
How does floodplain management impact economic growth and development in small municipalities?
Smart land use planning and floodplain management go hand in hand, guiding development in a way that avoids costly flood-related loss, while still allowing for expansion and growth and promoting a better quality of life.
Katie:
Floodplain management plays a crucial role in economic growth and development for small municipalities, influencing their short- and long-term goals in various ways.
Floodplain management reduces flood risk and economic losses by preventing damage to property and infrastructure through land use regulation. A reduction to the damage of property and infrastructure means that business disruptions and costs for repair are minimized, which lowers the financial burden on the municipality that would occur without management.
Smart land use planning and floodplain management go hand in hand, guiding development in a way that avoids costly flood-related loss, while still allowing for expansion and growth and promoting a better quality of life.
Floodplain management helps preserve natural features like rivers, lakes and wetlands, which can attract tourism and recreation, and has the potential to create jobs, drive revenue and enhance the community’s attractiveness. This increases incoming businesses’ and investors’ confidence in the community’s long-term commitment to the area.
As climate change increases the frequency and intensity of extreme weather events, municipalities with effective floodplain management plans are better equipped to adapt to these changes. This resilience can prevent long-term economic losses and ensure that communities remain viable places to live and work.
Municipalities with well-defined floodplain management strategies are more likely to qualify for federal or state grants, such as those from FEMA. These funds can be used to improve flood defenses, restore floodplains or invest in flood resilience measures that support sustainable development.
Floodplain management is at the crossroads of public safety, infrastructure resilience and environmental sustainability.
Joe:
The name of the game for most cities right now is “economic growth.” Usually folks think about attracting businesses, creating jobs and increasing property values. But what’s often overlooked is how floodplain management directly supports those goals. By properly administering floodplain regulations, municipalities can reduce the risk of flood damage, which protects both public and private investments. Businesses are more likely to invest in areas where they know their assets are secure, and homeowners benefit from stable property values and lower insurance costs.
Floodplain management is at the crossroads of public safety, infrastructure resilience and environmental sustainability. From a public safety perspective, it minimizes the risk to people and property by preventing development in high-risk flood zones and ensuring structures are built to withstand potential flooding. This reduces emergency response costs and helps communities recover more quickly after a disaster.
When municipalities proactively manage their floodplains, they make themselves more attractive for investment, reduce disaster-related expenses and create safer, more livable communities. It’s a win-win for everyone.
How do small cities balance affordability with the need for floodplain expertise and compliance?
Katie:
Our team has seen an uptick in smaller communities relying on their trusted professionals to help with floodplain management because it is a service that is not required all the time. We’ve acted as the floodplain administrator for multiple municipalities over the years when a community either didn’t have that expertise within or they were stretched thin with other duties.
Joe:
I’ve seen exactly that, too. I know that all jobs have a fine print “other duties as assigned” clause attached to them, but there does seem to be a heightened presence of that with municipal work. In a number of avenues, it is helpful for administration staff to acknowledge when it is appropriate to budget funds to offload duties such as floodplain administration to professional firms like ours. We know full well that most city budgets are stretched thin.
We think it makes sense to outsource certain tasks to professionals who know your community and can help your staff get back to what they know and do extremely well already. One-off projects in the floodplain may require a lot of research and administrative time that could be better utilized on other “bread and butter” tasks. Additionally, our experience and expertise allow us to find cost-effective floodplain management solutions, resulting in a more efficient use of taxpayer funds.
What building code requirements exist for construction in a floodplain?
Katie:
Buildings in floodplains are typically required to be constructed in compliance with FEMA regulations, including elevation standards. If a building is not compliant, owners may not be eligible for federal flood insurance.
FEMA flood zone maps determine whether a property is in a floodplain. New construction in mapped flood zones must meet FEMA’s floodplain management criteria, including elevation and floodproofing.
In addition to federal FEMA requirements, each state and municipality may have specific local building codes and regulations that further dictate construction requirements in floodplains. These often reflect regional flood risks, local priorities and additional safety measures tailored to the area’s needs. Other agencies may also have requirements in place for development within the floodplain.
Joe:
The points Katie mentioned are the first hurdles to clear. Once those items are sorted out, then the rest of the plan can be reviewed. Any new construction in a floodplain must always comply with modern building codes designed to minimize flood risks. Existing buildings also need to meet current standards if they undergo substantial damage or substantial renovations, as outlined in Section 104.2.1 of the building code. This ensures that structures are as resilient as possible to future flooding events.
Exceptions for flood-resistant construction are allowed only if unique site characteristics make elevation standards inappropriate, denying the variance would cause exceptional hardship, the variance poses no public safety risks or legal conflicts, it is the minimum necessary for relief, and the applicant is informed in writing about the increased flood risk and insurance costs.
As is the case with most development applications, minimum information should be included to clearly outline the plan for the project. A complete permit application must include a site plan that clearly identifies flood hazard areas, floodways and design flood elevations. The building plans must also demonstrate compliance with flood-resistant construction requirements, including details on the lowest floor elevation. These elements ensure that the structure is properly designed to handle potential flooding conditions.
Flood-resistant construction requires several key design considerations. Buildings need to use either flood-resistant materials or waterproofing techniques. The structure must be designed to withstand hydrostatic and hydrodynamic loads, and critical systems—like mechanical, electrical and plumbing—must be elevated or otherwise protected. Additionally, sanitary systems and fuel tanks need proper anchoring to prevent contamination or displacement during a flood. For underground areas, such as parking or storage, special precautions must be taken to ensure they don’t pose a flood risk. Additional sources of guidance come from ASCE 24 and Appendix G of the International Building Code (IBC).
One of the final steps is verifying that the building meets floodplain regulations. This typically includes certification of the lowest floor elevation or the minimum low opening—or both. This documentation helps confirm that the structure aligns with flood protection standards before it’s officially approved for use. Building permits always serve the purpose of a “snapshot in time,” and there’s no better situation for when that is needed than during development in the floodplain.
The Path Forward: Smart Floodplain Planning
Katie and Joe work closely with municipalities, serving as trusted partners in floodplain administration. Every community faces unique challenges, and having the right expertise can significantly impact the administration of floodplain development in your city.