CITY COUNCIL: Ordinance Amending CMC Section 8.72 related to Community Floodplains

Meeting Date: 3 February 2009
Prepared by: Sean Conroy, Planning & Building Svc. Manager

City Council
Agenda Item Summary

Name: Consideration of an Ordinance amending Carmel Municipal Code Section 8.72 related to Community Floodplains (First reading).

Description: This Ordinance will replace the City’s existing Floodplain Ordinance to be more consistent with Federal Emergency Management Administration (FEMA) requirements. The Ordinance also will allow the City and its residents to participate in the National Flood Insurance Program.

Overall Cost:
City Funds: N/A
Grant Funds: N/A

Staff Recommendation: Adopt the Ordinance.

Important Considerations: FEMA recently completed a flood insurance study and a Flood Insurance Rate Map (FIRM) for the City. FEMA requires that City’s enact appropriate floodplain management ordinances in order to participate in the National Flood Insurance Program. The only areas identified in the FIRM are Carmel Beach and Larson Ballpark. The proposed ordinance is a model ordinance developed for the State of California.

Decision Record: N/A

Reviewed by:

__________________________ _____________________
Rich Guillen, City Administrator Date


CITY OF CARMEL-BY-THE-SEA
STAFF REPORT
TO: MAYOR McCLOUD AND COUNCIL MEMBERS
FROM: SEAN CONROY, PLNG & BLDG SERVICES MANAGER
THROUGH: RICH GUILLEN, CITY ADMINISTRATOR
DATE: 3 FEBRUARY 2009
SUBJECT: CONSIDERATION OF AN ORDINANCE AMENDING CARMEL MUNICIPAL CODE SECTION 8.72
RELATED TO COMMUNITY FLOODPLAINS (1ST READING)

BACKGROUND & DESCRIPTION
The Federal Emergency Management Agency (FEMA) recently completed a flood insurance study and a Flood Insurance Rate Map (FIRM) for the City. FEMA requires jurisdictions to enact appropriate floodplain management ordinances in order to participate in the National Flood Insurance Program. Failure to enact appropriate regulations will result in a suspension of flood insurance for members of the community. According to FEMA, currently 23 homeowners in the City have policies.

This ordinance will replace and update the City’s existing Floodplain ordinance to be more consistent with FEMA requirements. The proposed ordinance is a model ordinance developed specifically for California coastal communities. The intent is to limit development in flood-prone areas and to protect the health, safety and general welfare of the community.

The identified flood zones include Carmel Beach and Larson Ballpark. Very little, if any, future development is foreseen in these two areas. Therefore, the primary benefit of the proposed ordinance is to continue to make flood insurance available for individuals in the City who currently have it or request it. Also, by
participating in the National Flood Insurance Program, the City may obtain federal disaster relief should a flood disaster be declared in the City.

RECOMMENDATION
Adopt the Ordinance (1st Reading).


CITY OF CARMEL-BY-THE-SEA
CITY COUNCIL
ORDINANCE 2009-
ORDINANCE OF THE CITY OF CARMEL-BY-THE-SEA AMENDING CARMEL MUNICIPAL CODE SECTION 8.72 RELATED TO COMMUNITY FLOODPLAINS

WHEREAS, the City has adopted a Municipal Code that strives to protect the health, safety and welfare of its citizens; and

WHEREAS, the Federal Emergency Management Agency (FEMA) has recently completed a Flood Insurance Study (FIS) and a Flood Insurance Rate Map (FIRM) for the City; and

WHEREAS, the proposed ordinance was developed for coastal California communities and meets the requirements of FEMA; and

WHEREAS, by participating in the Federal Flood Insurance Program, the citizens of Carmel-by-the-Sea will continue to have the opportunity to apply for Flood Insurance, and

WHEREAS, by participating in the Federal Flood Insurance Program, the City may obtain federal disaster relief if a flood disaster is ever declared in the City.

NOW, THEREFORE, BE IT RESOLVED THAT THE CITY COUNCIL OF THE CITY OF CARMEL-BY-THE-SEA does hereby resolve to:

Amend Municipal Code Section 8.72 to adopt the Model Floodplain management ordinance (seeattached).

PASSED AND ADOPTED BY THE CITY COUNCIL OF THE CITY OF CARMEL-BY-THE-SEA this ___ day of ________ 2009 by the following roll call vote:

AYES: COUNCIL MEMBERS:
NOES: COUNCIL MEMBERS:
ABSENT: COUNCIL MEMBERS:

SIGNED,

_________________________________
Heidi Burch, City Clerk

ATTEST:

________________________
SUE McCLOUD, MAYOR


CMC Chapter 8.72
SECTION 8.72.010
STATUTORY AUTHORIZATION.
The Legislature of the State of California has in Government Code Sections 65302, 65560, and 65800 conferred upon local governments the authority to adopt regulations designed to promote the public health, safety, and general welfare of its citizenry. Therefore, the City of Carmel-by-the-Sea does hereby adopt the following floodplain management regulations.

FINDINGS OF FACT.
A. The flood hazard areas of Carmel-by-the-Sea are subject to periodic inundation which results in loss of life and property, health and safety hazards, disruption of commerce and governmental services, extraordinary public expenditures for flood protection and relief, and impairment of the tax base, all of which adversely affect the public health, safety, and general welfare.

B. These flood losses are caused by uses that are inadequately elevated, floodproofed, or protected from flood damage. The cumulative effect of obstructions in areas of special flood hazards which increase flood heights and velocities also contributes to flood losses.

STATEMENT OF PURPOSE.
It is the purpose of this ordinance to promote the public health, safety, and general welfare, and to minimize public and private losses due to flood conditions in specific areas by legally enforceable regulations applied uniformly throughout the community to all publicly and privately owned land within flood prone, mudslide [i.e. mudflow] or flood related erosion areas. These regulations are designed to:

A. Protect human life and health;
B. Minimize expenditure of public money for costly flood control projects;
C. Minimize the need for rescue and relief efforts associated with flooding and generally undertaken at the expense of the general public;
D. Minimize prolonged business interruptions;
E. Minimize damage to public facilities and utilities such as water and gas mains;
electric, telephone and sewer lines; and streets and bridges located in areas of special flood hazard;
F. Help maintain a stable tax base by providing for the sound use and development of areas of special flood hazard so as to minimize future blighted areas caused by flood damage;
G. Ensure that potential buyers are notified that property is in an area of special flood hazard; and
H. Ensure that those who occupy the areas of special flood hazard assume responsibility for their actions.

METHODS OF REDUCING FLOOD LOSSES.
In order to accomplish its purposes, this ordinance includes regulations to:
A. Restrict or prohibit uses which are dangerous to health, safety, and property due to water or erosion hazards, or which result in damaging increases in erosion or flood heights or velocities;
B. Require that uses vulnerable to floods, including facilities which serve such uses, be protected against flood damage at the time of initial construction;
C. Control the alteration of natural floodplains, stream channels, and natural protective barriers, which help accommodate or channel floodwaters;
D. Control filling, grading, dredging, and other development which may increase flood
damage;
E. Prevent or regulate the construction of flood barriers which will unnaturally divert floodwaters or which may increase flood hazards in other areas; and
8.72.020

DEFINITIONS
Unless specifically defined below, words or phrases used in this ordinance shall be interpreted so as to give them the meaning they have in common usage and to give this ordinance its most reasonable application.
"A zone" - see "Special flood hazard area".
“Accessory structure” means a structure that is either:
1. Solely for the parking of no more than 2 cars; or
2. A small, low cost shed for limited storage, less than 150 square feet and $1,500 in value.
"Accessory use" means a use which is incidental and subordinate to the principal use of the parcel of land on which it is located.
"Alluvial fan" means a geomorphologic feature characterized by a cone or fan-shaped deposit of boulders, gravel, and fine sediments that have been eroded from mountain slopes, transported by flood flows, and then deposited on the valley floors, and which is subject to flash flooding, high velocity flows, debris flows, erosion, sediment movement and deposition, and channel migration.
"Apex" means a point on an alluvial fan or similar landform below which the flow path of the major stream that formed the fan becomes unpredictable and alluvial fan flooding can occur.
"Appeal" means a request for a review of the Floodplain Administrator's interpretation of any provision of this ordinance.
"Area of shallow flooding" means a designated AO or AH Zone on the Flood Insurance Rate Map (FIRM). The base flood depths range from one to three feet; a clearly defined channel does not exist; the path of flooding is unpredictable and indeterminate; and velocity flow may be evident. Such flooding is characterized by ponding or sheet flow.
"Area of special flood hazard" - See "Special flood hazard area."
"Base flood" means a flood which has a one percent chance of being equaled or exceeded in any given year (also called the "100-year flood"). Base flood is the term used throughout this ordinance.
“Base flood elevation” (BFE) means the elevation shown on the Flood Insurance Rate Map for Zones AE, AH, A1-30, VE and V1-V30 that indicates the water surface elevation resulting from a flood that has a 1-percent or greater chance of being equaled or exceeded in any given year.
"Basement" means any area of the building having its floor subgrade - i.e., below ground level - on all sides.
"Breakaway walls" are any type of walls, whether solid or lattice, and whether constructed of concrete, masonry, wood, metal, plastic or any other suitable building material which is not part of the structural support of the building and which is designed to break away under abnormally high tides or wave action without causing any damage to the structural integrity of the building on which they are used or any buildings to which they might be carried by flood waters. A
breakaway wall shall have a safe design loading resistance of not less than 10 and no more than 20 pounds per square foot. Use of breakaway walls must be certified by a registered engineer or architect and shall meet the following conditions:
1. Breakaway wall collapse shall result from a water load less than that which would occur during the base flood; and
2. The elevated portion of the building shall not incur any structural damage due to the effects of wind and water loads acting simultaneously in the event of the base flood.
"Building" - see "Structure".
"Coastal high hazard area" means an area of special flood hazard extending from offshore to the inland limit of a primary frontal dune along an open coast and any other area subject to high velocity wave action from storms or seismic sources. It is an area subject to high velocity waters, including coastal and tidal inundation or tsunamis. The area is designated on a Flood Insurance Rate Map (FIRM) as Zone V1-V30, VE, or V.
"Development" means any man-made change to improved or unimproved real estate, including but not limited to buildings or other structures, mining, dredging, filling, grading, paving, excavation or drilling operations or storage of equipment or materials.
"Encroachment" means the advance or infringement of uses, plant growth, fill, excavation, buildings, permanent structures or development into a floodplain which may impede or alter the flow capacity of a floodplain.
"Existing manufactured home park or subdivision" means a manufactured home park or
subdivision for which the construction of facilities for servicing the lots on which the manufactured homes are to be affixed (including, at a minimum, the installation of utilities, the construction of streets, and either final site grading or the pouring of concrete pads) is completed before 9 December 1997.
"Expansion to an existing manufactured home park or subdivision" means the preparation of additional sites by the construction of facilities for servicing the lots on which the manufactured homes are to be affixed (including the installation of utilities, the construction of streets, and either final site grading or the pouring of concrete pads).
"Flood, flooding, or flood water" means:
1. A general and temporary condition of partial or complete inundation of normally dry land areas from the overflow of inland or tidal waters; the unusual and rapid accumulation or runoff of surface waters from any source; and/or mudslides (i.e., mudflows); and
2. The condition resulting from flood-related erosion.
"Flood Boundary and Floodway Map (FBFM)" means the official map on which the Federal
Emergency Management Agency or Federal Insurance Administration has delineated both the areas of special flood hazards and the floodway.
"Flood Insurance Rate Map (FIRM)" means the official map on which the Federal Emergency Management Agency or Federal Insurance Administration has delineated both the areas of special flood hazards and the risk premium zones applicable to the community.
"Flood Insurance Study" means the official report provided by the Federal Insurance
Administration that includes flood profiles, the Flood Insurance Rate Map, the Flood Boundary and Floodway Map, and the water surface elevation of the base flood.
"Floodplain or flood-prone area" means any land area susceptible to being inundated by water from any source - see "Flooding."
"Floodplain Administrator" is the community official designated by title to administer and enforce the floodplain management regulations.
"Floodplain management" means the operation of an overall program of corrective and
preventive measures for reducing flood damage and preserving and enhancing, where possible, natural resources in the floodplain, including but not limited to emergency preparedness plans, flood control works, floodplain management regulations, and open space plans.
"Floodplain management regulations" means this ordinance and other zoning ordinances,
subdivision regulations, building codes, health regulations, special purpose ordinances (such as grading and erosion control) and other application of police power which control development in flood-prone areas. This term describes federal, state or local regulations in any combination thereof which provide standards for preventing and reducing flood loss and damage.
"Floodproofing" means any combination of structural and nonstructural additions, changes, or adjustments to structures which reduce or eliminate flood damage to real estate or improved real property, water and sanitary facilities, structures, and their contents. For guidelines on dry and wet floodproofing, see FEMA Technical Bulletins TB 1-93, TB 3-93, and TB 7-93.
"Floodway" means 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 one foot. Also referred to as "Regulatory Floodway."
"Floodway fringe" is that area of the floodplain on either side of the "Regulatory Floodway" where encroachment may be permitted.
"Fraud and victimization" as related to section 8.72.220 of this ordinance, means that the variance granted must not cause fraud on or victimization of the public. In examining this requirement, the City Council will consider the fact that every newly constructed building adds to government responsibilities and remains a part of the community for fifty to one-hundred years. Buildings that are permitted to be constructed below the base flood elevation are subject during all those years to increased risk of damage from floods, while future owners of the property and the community as a whole are subject to all the costs, inconvenience, danger, and
suffering that those increased flood damages bring. In addition, future owners may purchase the property, unaware that it is subject to potential flood damage, and can be insured only at very high flood insurance rates.
"Functionally dependent use" means a use which cannot perform its intended purpose unless it
is located or carried out in close proximity to water. The term includes only docking facilities,
port facilities that are necessary for the loading and unloading of cargo or passengers, and ship
building and ship repair facilities, and does not include long-term storage or related
manufacturing facilities.
"Governing body" is the local governing unit, i.e. county or municipality, that is empowered to
adopt and implement regulations to provide for the public health, safety and general welfare of
its citizenry.
"Hardship" as related to section 8.72.220 of this ordinance means the exceptional hardship that
would result from a failure to grant the requested variance. The City Council requires that the
variance be exceptional, unusual, and peculiar to the property involved. Mere economic or
financial hardship alone is not exceptional. Inconvenience, aesthetic considerations, physical
handicaps, personal preferences, or the disapproval of one's neighbors likewise cannot, as a rule,
qualify as an exceptional hardship. All of these problems can be resolved through other means
without granting a variance, even if the alternative is more expensive, or requires the property
owner to build elsewhere or put the parcel to a different use than originally intended.
"Highest adjacent grade" means the highest natural elevation of the ground surface prior to
construction next to the proposed walls of a structure.
"Historic structure" means any structure that is:
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1. Listed individually in the National Register of Historic Places (a listing maintained by the
Department of Interior) or preliminarily determined by the Secretary of the Interior as
meeting the requirements for individual listing on the National Register;
2. Certified or preliminarily determined by the Secretary of the Interior as contributing to
the historical significance of a registered historic district or a district preliminarily
determined by the Secretary to qualify as a registered historic district;
3. Individually listed on a state inventory of historic places in states with historic
preservation programs which have been approved by the Secretary of Interior; or
4. Individually listed on a local inventory of historic places in communities with historic
preservation programs that have been certified either by an approved state program as
determined by the Secretary of the Interior or directly by the Secretary of the Interior in
states without approved programs.
"Levee" means a man-made structure, usually an earthen embankment, designed and constructed
in accordance with sound engineering practices to contain, control or divert the flow of water so
as to provide protection from temporary flooding.
"Levee system" means a flood protection system, which consists of a levee, or levees, and
associated structures, such as closure and drainage devices, which are constructed and operated
in accord with sound engineering practices.
"Lowest floor" means the lowest floor of the lowest enclosed area, including basement (see
“Basement” definition).
1. An unfinished or flood resistant enclosure below the lowest floor that is usable solely for
parking of vehicles, building access or storage in an area other than a basement area, is
not considered a building’s lowest floor provided it conforms to applicable non-elevation
design requirements, including, but not limited to:
a. The flood openings standard in 5.72.150.C.3;
b. The anchoring standards in 8.72.150.A;
c. The construction materials and methods standards in 8.72.150.B; and
d. The standards for utilities in 8.72.160.
2. For residential structures, all subgrade enclosed areas are prohibited as they are
considered to be basements (see “Basement” definition). This prohibition includes
below-grade garages and storage areas.
"Manufactured home" means a structure, transportable in one or more sections, which is built
on a permanent chassis and is designed for use with or without a permanent foundation when
attached to the required utilities. The term "manufactured home" does not include a "recreational
vehicle".
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"Manufactured home park or subdivision" means a parcel (or contiguous parcels) of land
divided into two or more manufactured home lots for rent or sale.
“Market value” is defined in the City of Carmel-by-the-Sea substantial damage/improvement
procedures. See 8.72.120.B
"Mean sea level" means, for purposes of the National Flood Insurance Program, the National
Geodetic Vertical Datum (NGVD) of 1929, North American Vertical Datum (NAVD) of 1988,
or other datum, to which base flood elevations shown on a community's Flood Insurance Rate
Map are referenced.
"New construction", for floodplain management purposes, means structures for which the "start
of construction" commenced on or after 9 December 1997, and includes any subsequent
improvements to such structures.
"New manufactured home park or subdivision" means a manufactured home park or
subdivision for which the construction of facilities for servicing the lots on which the
manufactured homes are to be affixed (including at a minimum, the installation of utilities, the
construction of streets, and either final site grading or the pouring of concrete pads) is completed
on or after 9 December 1997.
"Obstruction" includes, but is not limited to, any dam, wall, wharf, embankment, levee, dike,
pile, abutment, protection, excavation, channelization, bridge, conduit, culvert, building, wire,
fence, rock, gravel, refuse, fill, structure, vegetation or other material in, along, across or
projecting into any watercourse which may alter, impede, retard or change the direction and/or
velocity of the flow of water, or due to its location, its propensity to snare or collect debris
carried by the flow of water, or its likelihood of being carried downstream.
"One-hundred-year flood" or "100-year flood" - see "Base flood."
"Primary frontal dune" means a continuous or nearly continuous mound or ridge of sand with
relatively steep seaward and landward slopes immediately landward and adjacent to the beach
and subject to erosion and overtopping from high tides and waves during major coastal storms.
The inland limit of the primary frontal dune occurs at the point where there is a distinct change
from a relatively mild slope.
“Program deficiency” means a defect in a community’s floodplain management regulations or
administrative procedures that impairs effective implementation of those floodplain management
regulations.
"Public safety and nuisance" as related to 8.72.220 of this ordinance, means that the granting of
a variance must not result in anything which is injurious to safety or health of an entire
community or neighborhood, or any considerable number of persons, or unlawfully obstructs the
free passage or use, in the customary manner, of any navigable lake, or river, bay, stream, canal,
or basin.
"Recreational vehicle" means a vehicle which is:
1. Built on a single chassis;
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2. 400 square feet or less when measured at the largest horizontal projection;
3. Designed to be self-propelled or permanently towable by a light-duty truck; and
4. Designed primarily not for use as a permanent dwelling but as temporary living quarters
for recreational, camping, travel, or seasonal use.
"Regulatory floodway" means 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 one foot.
“Remedy a violation” means to bring the structure or other development into compliance with
State or local floodplain management regulations, or if this is not possible, to reduce the impacts
of its noncompliance. Ways that impacts may be reduced include protecting the structure or
other affected development from flood damages, implementing the enforcement provisions of the
ordinance or otherwise deterring future similar violations, or reducing State or Federal financial
exposure with regard to the structure or other development.
"Riverine" means relating to, formed by, or resembling a river (including tributaries), stream,
brook, etc.
"Sand dunes" mean naturally occurring accumulations of sand in ridges or mounds landward of
the beach.
"Sheet flow area" - see "Area of shallow flooding."
"Special flood hazard area (SFHA)" means an area in the floodplain subject to a 1 percent or
greater chance of flooding in any given year. It is shown on an FHBM or FIRM as Zone A, AO,
A1-A30, AE, A99, AH, V1-V30, VE or V.
"Start of construction" includes substantial improvement and other proposed new development
and means the date the building permit was issued, provided the actual start of construction,
repair, reconstruction, rehabilitation, addition, placement, or other improvement was within 180
days from the date of the permit. The actual start means either the first placement of permanent
construction of a structure on a site, such as the pouring of slab or footings, the installation of
piles, the construction of columns, or any work beyond the stage of excavation; or the placement
of a manufacture home on a foundation. Permanent construction does not include land
preparation, such as clearing, grading, and filling; nor does it include the installation of streets
and/or walkways; nor does it include excavation for a basement, footings, piers, or foundations
or the erection of temporary forms; nor does it include the installation on the property of
accessory buildings, such as garages or sheds not occupied as dwelling units or not part of the
main structure. For a substantial improvement, the actual start of construction means the first
alteration of any wall, ceiling, floor, or other structural part of a building, whether or not that
alteration affects the external dimensions of the building.
"Structure" means a walled and roofed building that is principally above ground; this includes a
gas or liquid storage tank or a manufactured home.
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"Substantial damage" means damage of any origin sustained by a structure whereby the cost of
restoring the structure to its before damaged condition would equal or exceed 50 percent of the
market value of the structure before the damage occurred.
"Substantial improvement" means any reconstruction, rehabilitation, addition, or other
improvement of a structure, the cost of which equals or exceeds 50 percent of the market value
of the structure before the "start of construction" of the improvement. This term includes
structures, which have incurred "substantial damage", regardless of the actual repair work
performed. The term does not, however, include either:
1. Any project for improvement of a structure to correct existing violations or state or local
health, sanitary, or safety code specifications which have been identified by the local
code enforcement official and which are the minimum necessary to assure safe living
conditions; or
2. Any alteration of a "historic structure," provided that the alteration will not preclude the
structure's continued designation as a "historic structure."
"V zone" - see "Coastal high hazard area."
"Variance" means a grant of relief from the requirements of this ordinance which permits
construction in a manner that would otherwise be prohibited by this ordinance.
“Violation” means the failure of a structure or other development to be fully compliant with this
ordinance. A structure or other development without the elevation certificate, other
certifications, or other evidence of compliance required in this ordinance is presumed to be in
violation until such time as that documentation is provided.
"Water surface elevation" means the height, in relation to the National Geodetic Vertical
Datum (NGVD) of 1929, North American Vertical Datum (NAVD) of 1988, or other datum, of
floods of various magnitudes and frequencies in the floodplains of coastal or riverine areas.
"Watercourse" means a lake, river, creek, stream, wash, arroyo, channel or other topographic
feature on or over which waters flow at least periodically. Watercourse includes specifically
designated areas in which substantial flood damage may occur.
8.72.040
LANDS TO WHICH THIS ORDINANCE APPLIES.
This ordinance shall apply to all areas of special flood hazards within the jurisdiction of the
City of Carmel-by-the-Sea as identified by the most recent Flood Insurance Rate Maps
provided by the Federal Emergency Management Agency.
8.72.050
BASIS FOR ESTABLISHING THE AREAS OF SPECIAL FLOOD HAZARD.
The areas of special flood hazard identified by the Federal Emergency Management Agency
(FEMA) in the “Flood Insurance Study (FIS) for the City of Carmel-by-the-Sea, with
accompanying Flood Insurance Rate Maps (FIRMs) and Flood Boundary and Floodway
Maps (FBFMs), effective 2 April 2009, and all subsequent amendments and/or revisions, are
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hereby adopted by reference and declared to be a part of this ordinance. This FIS and
attendant mapping is the minimum area of applicability of this ordinance and may be
supplemented by studies for other areas which allow implementation of this ordinance and
which are recommended to the City Council by the Floodplain Administrator. The study,
FIRMs and FBFMs are on file with the City Clerk.
8.72.060
COMPLIANCE.
No structure or land shall hereafter be constructed, located, extended, converted, or altered
without full compliance with the terms of this ordinance and other applicable regulations.
Violation of the requirements (including violations of conditions and safeguards) shall constitute
a misdemeanor. Nothing herein shall prevent the City Council from taking such lawful action as
is necessary to prevent or remedy any violation.
8.72.070
ABROGATION AND GREATER RESTRICTIONS.
This ordinance is not intended to repeal, abrogate, or impair any existing easements,
covenants, or deed restrictions. However, where this ordinance and another ordinance,
easement, covenant, or deed restriction conflict or overlap, whichever imposes the more
stringent restrictions shall prevail.
8.72.080
INTERPRETATION.
In the interpretation and application of this ordinance, all provisions shall be:
A. Considered as minimum requirements;
B. Liberally construed in favor of the governing body; and
C. Deemed neither to limit nor repeal any other powers granted under state statutes.
8.72.090
WARNING AND DISCLAIMER OF LIABILITY.
The degree of flood protection required by this ordinance is considered reasonable for regulatory
purposes and is based on scientific and engineering considerations. Larger floods can and will
occur on rare occasions. Flood heights may be increased by man-made or natural causes. This
ordinance does not imply that land outside the areas of special flood hazards or uses permitted
within such areas will be free from flooding or flood damages. This ordinance shall not create
liability on the part of the City Council, any officer or employee thereof, the State of California,
or the Federal Emergency Management Agency, for any flood damages that result from reliance
on this ordinance or any administrative decision lawfully made hereunder.
8.72.100
SEVERABILITY.
This ordinance and the various parts thereof are hereby declared to be severable. Should any
section of this ordinance be declared by the courts to be unconstitutional or invalid, such decision
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shall not affect the validity of the ordinance as a whole, or any portion thereof other than the
section so declared to be unconstitutional or invalid.
8.72.110
DESIGNATION OF THE FLOODPLAIN ADMINISTRATOR.
The City Administrator and/or his/her designated representative is hereby appointed to
administer, implement, and enforce this ordinance by granting or denying development
permits in accord with its provisions.
8.72.120
DUTIES AND RESPONSIBILITIES OF THE FLOODPLAIN ADMINISTRATOR.
The duties and responsibilities of the Floodplain Administrator shall include, but not be
limited to the following:
A. Permit Review.
Review all development permits to determine:
1. Permit requirements of this ordinance have been satisfied, including
determination of substantial improvement and substantial damage of existing
structures;
2. All other required state and federal permits have been obtained;
3. The site is reasonably safe from flooding;
4. The proposed development does not adversely affect the carrying capacity of
areas where base flood elevations have been determined but a floodway has not
been designated. This means that the cumulative effect of the proposed
development when combined with all other existing and anticipated development
will not increase the water surface elevation of the base flood more than 1 foot at
any point within the City of Carmel-by-the-Sea; and
5. All Letters of Map Revision (LOMRs) for flood control projects are approved
prior to the issuance of building permits. Building Permits must not be issued
based on Conditional Letters of Map Revision (CLOMRs). Approved CLOMRs
allow construction of the proposed flood control project and land preparation as
specified in the “start of construction” definition.
B. Development of Substantial Improvement and Substantial Damage Procedures.
1. Using FEMA publication FEMA 213, “Answers to Questions About Substantially
Damaged Buildings,” develop detailed procedures for identifying and
administering requirements for substantial improvement and substantial damage,
to include defining “Market Value.”
2. Assure procedures are coordinated with other departments/divisions and
implemented by community staff.
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C. Review, Use and Development of Other Base Flood Data.
When base flood elevation data has not been provided in accordance with 8.72.050,
the Floodplain Administrator shall obtain, review, and reasonably utilize any base
flood elevation and floodway data available from a federal or state agency, or other
source, in order to administer section 8.72.150.
NOTE: A base flood elevation may be obtained using one of two methods from the
FEMA publication, FEMA 265, “Managing Floodplain Development in Approximate
Zone A Areas – A Guide for Obtaining and Developing Base (100-year) Flood
Elevations” dated July 1995.
D. Notification of Other Agencies.
1. Alteration or relocation of a watercourse:
a. Notify adjacent communities and the California Department of Water
Resources prior to alteration or relocation;
b. Submit evidence of such notification to the Federal Emergency Management
Agency; and
c. Assure that the flood carrying capacity within the altered or relocated portion
of said watercourse is maintained.
2. Base Flood Elevation changes due to physical alterations:
a. Within 6 months of information becoming available or project completion,
whichever comes first, the floodplain administrator shall submit or assure that
the permit applicant submits technical or scientific data to FEMA for a Letter
of Map Revision (LOMR).
b. All LOMRs for flood control projects are approved prior to the issuance of
building permits. Building Permits must not be issued based on Conditional
Letters of Map Revision (CLOMRs). Approved CLOMRs allow construction
of the proposed flood control project and land preparation as specified in the
“start of construction” definition.
Such submissions are necessary so that upon confirmation of those physical
changes affecting flooding conditions, risk premium rates and floodplain
management requirements are based on current data.
3. Changes in corporate boundaries:
Notify FEMA in writing whenever the corporate boundaries have been modified
by annexation or other means and include a copy of a map of the community
clearly delineating the new corporate limits.
E. Documentation of Floodplain Development.
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Obtain and maintain for public inspection and make available as needed the
following:
1. Certification required by section 8.72.150.C.1 and section 8.72.180 (lowest floor
elevations);
2. Certification required by section 8.72.150.C.2 (elevation or floodproofing of
nonresidential structures);
3. Certification required by 8.72.150.C.3 (wet floodproofing standard);
4. Certification of elevation required by section 8.72.170.A.3 (subdivisions and
other proposed development standards);
5. Certification required by section 8.72.200 (floodway encroachments);
6. Information required by section 8.72.210.F (coastal construction standards); and
7. Maintain a record of all variance actions, including justification for their issuance,
and report such variances issued in its biennial report submitted to the Federal
Emergency Management Agency.
F. Map Determination.
Make interpretations where needed, as to the exact location of the boundaries of the
areas of special flood hazard, where there appears to be a conflict between a mapped
boundary and actual field conditions. The person contesting the location of the
boundary shall be given a reasonable opportunity to appeal the interpretation as
provided in section 8.72.140.
F. Remedial Action.
Take action to remedy violations of this ordinance as specified in section 8.72.060.
G. Biennial Report.
Complete and submit Biennial Report to FEMA.
H. Planning.
Assure community’s General Plan is consistent with floodplain management
objectives herein.
8.72.130
DEVELOPMENT PERMIT.
A development permit shall be obtained before any construction or other development,
including manufactured homes, within any area of special flood hazard established in section
8.72.050. Application for a development permit shall be made on forms furnished by the
City of Carmel-by-the-Sea. The applicant shall provide the following minimum information:
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A. Plans in duplicate, drawn to scale, showing:
1. Location, dimensions, and elevation of the area in question, existing or proposed
structures, storage of materials and equipment and their location;
2. Proposed locations of water supply, sanitary sewer, and other utilities;
3. Grading information showing existing and proposed contours, any proposed fill,
and drainage facilities;
4. Location of the regulatory floodway when applicable;
5. Base flood elevation information as specified in section 8.72.050120.C;
6. Proposed elevation in relation to mean sea level, of the lowest floor (including
basement) of all structures; and
7. Proposed elevation in relation to mean sea level to which any nonresidential
structure will be floodproofed, as required in section 8.72.150.C.2 of this
ordinance and detailed in FEMA Technical Bulletin TB 3-93.
B. Certification from a registered civil engineer or architect that the nonresidential
floodproofed building meets the floodproofing criteria in section 8.72.150.C.2
C. For a crawl-space foundation, location and total net area of foundation openings as
required in section 8.72.150.C.3 of this ordinance and detailed in FEMA Technical
Bulletins 1-93 and 7-93.
D. Description of the extent to which any watercourse will be altered or relocated as a
result of proposed development.
E. All appropriate certifications listed in section 8.72.120.E of this ordinance.
8.72.140
APPEALS.
The City Council shall hear and decide appeals when it is alleged there is an error in any
requirement, decision, or determination made by the Floodplain Administrator in the
enforcement or administration of this ordinance.
8.72.150
STANDARDS OF CONSTRUCTION.
In all areas of special flood hazards the following standards are required:
A. Anchoring.
All new construction and substantial improvements of structures, including
manufactured homes, shall be adequately anchored to prevent flotation, collapse or
lateral movement of the structure resulting from hydrodynamic and hydrostatic loads,
including the effects of buoyancy.
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B. Construction Materials and Methods.
All new construction and substantial improvements of structures, including
manufactured homes, shall be constructed:
1. With flood resistant materials, and utility equipment resistant to flood damage for
areas below the base flood elevation;
2. Using methods and practices that minimize flood damage;
3. With electrical, heating, ventilation, plumbing and air conditioning equipment and
other service facilities that are designed and/or located so as to prevent water from
entering or accumulating within the components during conditions of flooding;
and
4. Within Zones AH or AO, so that there are adequate drainage paths around
structures on slopes to guide flood waters around and away from proposed
structures.
C. Elevation and Floodproofing.
1. Residential construction.
All new construction or substantial improvements of residential structures shall
have the lowest floor, including basement:
a. In AE, AH, A1-30 Zones, elevated to or above the base flood elevation.
b. In an AO zone, elevated above the highest adjacent grade to a height equal to
or exceeding the depth number specified in feet on the FIRM, or elevated at
least 2 feet above the highest adjacent grade if no depth number is specified.
c. In an A zone, without BFEs specified on the FIRM [unnumbered A zone],
elevated to or above the base flood elevation; as determined under section
8.72.120.2.C.
Upon the completion of the structure, the elevation of the lowest floor, including
basement, shall be certified by a registered civil engineer or licensed land
surveyor, and verified by the community building inspector to be properly
elevated. Such certification and verification shall be provided to the Floodplain
Administrator.
2. Nonresidential construction.
All new construction or substantial improvements of nonresidential structures
shall either be elevated to conform with section 8.72.150.C.1 or:
a. Be floodproofed, together with attendant utility and sanitary facilities, below
the elevation recommended under section 8.72.150.C.1, so that the structure is
watertight with walls substantially impermeable to the passage of water;
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b. Have structural components capable of resisting hydrostatic and
hydrodynamic loads and effects of buoyancy; and
c. Be certified by a registered civil engineer or architect that the standards of
section 8.72.150.C.2.a & b are satisfied. Such certification shall be provided
to the Floodplain Administrator.
3. Flood openings.
All new construction and substantial improvements of structures with fully
enclosed areas below the lowest floor (excluding basements) that are usable solely
for parking of vehicles, building access or storage, and which are subject to
flooding, shall be designed to automatically equalize hydrostatic flood forces on
exterior walls by allowing for the entry and exit of floodwater. Designs for
meeting this requirement must meet the following minimum criteria:
a. For non-engineered openings:
1. Have a minimum of two openings on different sides having a total net area
of not less than one square inch for every square foot of enclosed area
subject to flooding;
2. The bottom of all openings shall be no higher than one foot above grade;
3. Openings may be equipped with screens, louvers, valves or other
coverings or devices provided that they permit the automatic entry and
exit of floodwater; and
4. Buildings with more than one enclosed area must have openings on
exterior walls for each area to allow flood water to directly enter; or
b. Be certified by a registered civil engineer or architect.
4. Manufactured homes.
a. See section 8.72.180.
5. Garages and low cost accessory structures.
a. Attached garages.
1. A garage attached to a residential structure, constructed with the garage
floor slab below the BFE, must be designed to allow for the automatic
entry of flood waters. See section 8.72.150.C.3. Areas of the garage
below the BFE must be constructed with flood resistant materials. See
section 8.72.150.b.
2. A garage attached to a nonresidential structure must meet the above
requirements or be dry floodproofed. For guidance on below grade
parking areas, see FEMA Technical Bulletin TB-6.
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b. Detached garages and accessory structures.
1. “Accessory structures” used solely for parking (2 car detached garages or
smaller) or limited storage (small, low-cost sheds), as defined in section
8.72.020, may be constructed such that its floor is below the base flood
elevation (BFE), provided the structure is designed and constructed in
accordance with the following requirements:
a) Use of the accessory structure must be limited to parking or limited
storage;
b) The portions of the accessory structure located below the BFE must be
built using flood-resistant materials;
c) The accessory structure must be adequately anchored to prevent
flotation, collapse and lateral movement;
d) Any mechanical and utility equipment in the accessory structure must
be elevated or floodproofed to or above the BFE;
e) The accessory structure must comply with floodplain encroachment
provisions in section 8.72.200; and
f) The accessory structure must be designed to allow for the automatic
entry of flood waters in accordance with 8.72.150.C.
2. Detached garages and accessory structures not meeting the above
standards must be constructed in accordance with all applicable standards
in 8.72.150.
8.72.160
STANDARDS FOR UTILITIES.
A. All new and replacement water supply and sanitary sewage systems shall be designed
to minimize or eliminate:
1. Infiltration of flood waters into the systems; and
2. Discharge from the systems into flood waters.
B. On-site waste disposal systems shall be located to avoid impairment to them, or
contamination from them during flooding.
8.72.170
STANDARDS FOR SUBDIVISIONS AND OTHER PROPOSED DEVELOPMENT.
A. All new subdivisions proposals and other proposed development, including proposals
for manufactured home parks and subdivisions, greater than 50 lots or 5 acres,
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whichever is the lesser, shall:
1. Identify the Special Flood Hazard Areas (SFHA) and Base Flood Elevations
(BFE).
2. Identify the elevations of lowest floors of all proposed structures and pads on the
final plans.
3. If the site is filled above the base flood elevation, the following as-built
information for each structure shall be certified by a registered civil engineer or
licensed land surveyor and provided as part of an application for a Letter of Map
Revision based on Fill (LOMR-F) to the Floodplain Administrator:
a. Lowest floor elevation.
b. Pad elevation.
c. Lowest adjacent grade.
B. All subdivision proposals and other proposed development shall be consistent with
the need to minimize flood damage.
C. All subdivision proposals and other proposed development shall have public utilities
and facilities such as sewer, gas, electrical and water systems located and constructed
to minimize flood damage.
D. All subdivisions and other proposed development shall provide adequate drainage to
reduce exposure to flood hazards.
8.72.180
STANDARDS FOR MANUFACTURED HOMES.
A. All manufactured homes that are placed or substantially improved, on sites located:
(1) outside of a manufactured home park or subdivision; (2) in a new manufactured
home park or subdivision; (3) in an expansion to an existing manufactured home park
or subdivision; or (4) in an existing manufactured home park or subdivision upon
which a manufactured home has incurred "substantial damage" as the result of a
flood, shall:
1. Within Zones A1-30, AH, and AE on the community's Flood Insurance Rate Map,
be elevated on a permanent foundation such that the lowest floor of the
manufactured home is elevated to or above the base flood elevation and be
securely fastened to an adequately anchored foundation system to resist flotation,
collapse, and lateral movement.
2. Within Zones V1-30, V, and VE on the community's Flood Insurance Rate Map,
meet the requirements of section 8.72.210.
B. All manufactured homes to be placed or substantially improved on sites in an existing
manufactured home park or subdivision within Zones A1-30, AH, AE, V1-30, V, and
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VE on the community's Flood Insurance Rate Map that are not subject to the
provisions of section 8.72.180.A will be securely fastened to an adequately anchored
foundation system to resist flotation, collapse, and lateral movement, and be elevated
so that either the:
1. Lowest floor of the manufactured home is at or above the base flood elevation; or
2. Manufactured home chassis is supported by reinforced piers or other foundation
elements of at least equivalent strength that are no less than 36 inches in height
above grade.
Upon the completion of the structure, the elevation of the lowest floor including basement
shall be certified by a registered civil engineer or licensed land surveyor, and verified by the
community building inspector to be properly elevated. Such certification and verification
shall be provided to the Floodplain Administrator.
8.72.190
STANDARDS FOR RECREATIONAL VEHICLES.
A. All recreational vehicles placed in Zones A1-30, AH, AE, V1-30 and VE will either:
1. Be on the site for fewer than 180 consecutive days; or
2. Be fully licensed and ready for highway use. A recreational vehicle is ready for
highway use if it is on its wheels or jacking system, is attached to the site only by
quick disconnect type utilities and security devices, and has no permanently
attached additions; or
3. Meet the permit requirements of section 8.72.180 of this ordinance and the
elevation and anchoring requirements for manufactured homes in section
8.72.180.
B. Recreational vehicles placed on sites within Zones V1-30, V, and VE on the
community's Flood Insurance Rate Map will meet the requirements of section
8.72190.A and section 8.72.210.
8.72.200
FLOODWAYS.
Since floodways are an extremely hazardous area due to the velocity of flood waters, which
carry debris, potential projectiles, and erosion potential, the following provisions apply:
A. Until a regulatory floodway is adopted, no new construction, substantial
development, or other development (including fill) shall be permitted within Zones
A1-30 and AE, unless it is demonstrated that the cumulative effect of the proposed
development, when combined with all other development, will not increase the water
surface elevation of the base flood more than 1 foot at any point within the City of
Carmel-by-the-Sea.
B. Within an adopted regulatory floodway, the City of Carmel-by-the-Sea shall prohibit
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encroachments, including fill, new construction, substantial improvements, and other
development, unless certification by a registered civil engineer is provided
demonstrating that the proposed encroachment shall not result in any increase in flood
levels during the occurrence of the base flood discharge.
C. If section 8.72.200.A & B are satisfied, all new construction, substantial
improvement, and other proposed new development shall comply with all other
applicable flood hazard reduction provisions of section 8.72.150.
8.72.210
COASTAL HIGH HAZARD AREAS.
Within coastal high hazard areas, Zones V, V1-30, and VE, as established under section
8.72.050, the following standards shall apply:
A. All new residential and non-residential construction, including substantial
improvement/damage, shall be elevated on adequately anchored pilings or columns
and securely anchored to such pilings or columns so that the bottom of the lowest
horizontal structural member of the lowest floor (excluding the pilings or columns) is
elevated to or above the base flood level. The pile or column foundation and
structure attached thereto is anchored to resist flotation, collapse, and lateral
movement due to the effects of wind and water loads acting simultaneously on all
building components. Water loading values used shall be those associated with the
base flood. Wind loading values used shall be those required by applicable state or
local building standards.
B. All new construction and other development shall be located on the landward side of
the reach of mean high tide.
C. All new construction and substantial improvement shall have the space below the
lowest floor free of obstructions or constructed with breakaway walls as defined in
section 8.72.020 of this ordinance. Such enclosed space shall not be used for human
habitation and will be usable solely for parking of vehicles, building access or
storage.
D. Fill shall not be used for structural support of buildings.
E. Man-made alteration of sand dunes which would increase potential flood damage is
prohibited.
F. The Floodplain Administrator shall obtain and maintain the following records:
1. Certification by a registered engineer or architect that a proposed structure
complies with section 8.72.210.A; and
2. The elevation (in relation to mean sea level) of the bottom of the lowest horizontal
structural member of the lowest floor (excluding pilings or columns) of all new
and substantially improved structures, and whether such structures contain a
basement.
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8.72.220
NATURE OF VARIANCES.
The issuance of a variance is for floodplain management purposes only. Insurance premium
rates are determined by statute according to actuarial risk and will not be modified by the
granting of a variance.
The variance criteria set forth in this section of the ordinance are based on the general
principle of zoning law that variances pertain to a piece of property and are not personal in
nature. A variance may be granted for a parcel of property with physical characteristics so
unusual that complying with the requirements of this ordinance would create an exceptional
hardship to the applicant or the surrounding property owners. The characteristics must be
unique to the property and not be shared by adjacent parcels. The unique characteristic must
pertain to the land itself, not to the structure, its inhabitants, or the property owners.
It is the duty of the City Council to help protect its citizens from flooding. This need is so
compelling and the implications of the cost of insuring a structure built below flood level are
so serious that variances from the flood elevation or from other requirements in the flood
ordinance are quite rare. The long term goal of preventing and reducing flood loss and
damage can only be met if variances are strictly limited. Therefore, the variance guidelines
provided in this ordinance are more detailed and contain multiple provisions that must be met
before a variance can be properly granted. The criteria are designed to screen out those
situations in which alternatives other than a variance are more appropriate.
8.72.230
CONDITIONS FOR VARIANCES.
A. Generally, variances may be issued for new construction, substantial improvement,
and other proposed new development to be erected on a lot of one-half acre or less in
size contiguous to and surrounded by lots with existing structures constructed below
the base flood level, providing that the procedures of sections 8.72.110 & 150 of this
ordinance have been fully considered. As the lot size increases beyond one-half acre,
the technical justification required for issuing the variance increases.
B. Variances may be issued for the repair or rehabilitation of "historic structures" (as
defined in section 8.72.020 of this ordinance) upon a determination that the proposed
repair or rehabilitation will not preclude the structure's continued designation as an
historic structure and the variance is the minimum necessary to preserve the historic
character and design of the structure.
C. Variances shall not be issued within any mapped regulatory floodway if any increase
in flood levels during the base flood discharge would result.
D. Variances shall only be issued upon a determination that the variance is the
"minimum necessary" considering the flood hazard, to afford relief. "Minimum
necessary" means to afford relief with a minimum of deviation from the requirements
of this ordinance. For example, in the case of variances to an elevation requirement,
this means the City Council need not grant permission for the applicant to build at
grade, or even to whatever elevation the applicant proposes, but only to that elevation
which the City Council believes will both provide relief and preserve the integrity of
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the local ordinance.
E. Any applicant to whom a variance is granted shall be given written notice over the
signature of a community official that:
1. The issuance of a variance to construct a structure below the base flood level will
result in increased premium rates for flood insurance up to amounts as high as $25
for $100 of insurance coverage, and
2. Such construction below the base flood level increases risks to life and property.
It is recommended that a copy of the notice shall be recorded by the Floodplain
Administrator in the Office of the County of Monterey Recorder and shall be
recorded in a manner so that it appears in the chain of title of the affected parcel
of land.
F. The Floodplain Administrator will maintain a record of all variance actions, including
justification for their issuance, and report such variances issued in its biennial report
submitted to the Federal Emergency Management Agency.
8.72.240
APPEAL BOARD
A. In passing upon requests for variances, the City Council shall consider all technical
evaluations, all relevant factors, standards specified in other sections of this
ordinance, and the:
1. Danger that materials may be swept onto other lands to the injury of others;
2. Danger of life and property due to flooding or erosion damage;
3. Susceptibility of the proposed facility and its contents to flood damage and the
effect of such damage on the existing individual owner and future owners of the
property;
4. Importance of the services provided by the proposed facility to the community;
5. Necessity to the facility of a waterfront location, where applicable;
6. Availability of alternative locations for the proposed use which are not subject to
flooding or erosion damage;
7. Compatibility of the proposed use with existing and anticipated development;
8. Relationship of the proposed use to the comprehensive plan and floodplain
management program for that area;
9. Safety of access to the property in time of flood for ordinary and emergency
vehicles;
10. Expected heights, velocity, duration, rate of rise, and sediment transport of the
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flood waters expected at the site; and
11. Costs of providing governmental services during and after flood conditions,
including maintenance and repair of public utilities and facilities such as sewer,
gas, electrical, and water system, and streets and bridges.
B. Variances shall only be issued upon a:
1. Showing of good and sufficient cause;
2. Determination that failure to grant the variance would result in exceptional
"hardship" to the applicant; and
3. Determination that the granting of a variance will not result in increased flood
heights, additional threats to public safety, or extraordinary public expense, create
a nuisance (see "Public safety and nuisance"), cause “fraud and
victimization” of the public, or conflict with existing local laws or ordinances.
C. Variances may be issued for new construction, substantial improvement, and other
proposed new development necessary for the conduct of a functionally dependent use
provided that the provisions of section 8.72.240.A through 8.72.240.D are satisfied
and that the structure or other development is protected by methods that minimize
flood damages during the base flood and does not result in additional threats to public
safety and does not create a public nuisance.
D. Upon consideration of the factors of section 8.72.230.A and the purposes of this
ordinance, the City Council may attach such conditions to the granting of variances as
it deems necessary to further the purposes of this ordinance.
APPENDIX
1.0 ALLUVIAL FAN ADVISORY
Hazards of Alluvial Fan Development
Alluvial fans present a unique flood hazard environment where the combination of sediment,
slope, and topography create an ultra hazardous condition for which elevation on fill will not
provide reliable protection. Active alluvial fan flooding is characterized by flow path uncertainty
combined with abrupt deposition and erosion. As a result, any area of an alluvial fan may be
subject to intense flood hazards.
The technology of mathematically modeling the hydrodynamics of water and debris flows for
alluvial fans is still in the early development stage. The Federal Emergency Management Agency
(FEMA) has formulated a mapping procedure for the purpose of defining the likelihood of flood
hazards on inundated alluvial fan zones to be used for flood insurance purposes and general
floodplain regulation, referred to as the FEMA alluvial fan methodology.
An active alluvial fan flooding hazard is indicated by three related criteria:
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a. Flow path uncertainty below the hydrographic apex;
b. Abrupt deposition and ensuing erosion of sediment as a stream or debris flow loses its
competence to carry material eroded from a steeper, upstream source area; and
c. An environment where the combination of sediment availability, slope, and topography
creates an ultra hazardous condition for which elevation on fill will not reliably mitigate
the risk.
Inactive alluvial fan flooding is similar to traditional riverine flood hazards, but occurs only on
alluvial fans. It is characterized by flow paths with a higher degree of certainty in realistic
assessments of flood risk or in the reliable mitigation of the hazard. Counter to active alluvial fan
flooding hazards, an inactive alluvial fan flooding hazard is characterized by relatively stable
flow paths. However, areas of inactive alluvial fan flooding, as with active alluvial fan flooding,
may be subject to sediment deposition and erosion, but to a degree that does not cause flow path
instability and uncertainty.
An alluvial fan may exhibit both active alluvial fan flooding and inactive alluvial fan flooding
hazards. The hazards may vary spatially or vary at the same location, contingent on the level of
flow discharge. Spatially, for example, upstream inactive portions of the alluvial fan may
distribute flood flow to active areas at the distal part of the alluvial fan. Hazards may vary at the
same location, for example, with a flow path that may be stable for lower flows, but become
unstable at higher flows.
More detailed information can be found at FEMA’s website: “Guidelines for Determining Flood
Hazards on Alluvial Fans” at http://www.fema.gov/fhm/ft_afgd2.shtm#1.
Alluvial Fans and LOMRs
The NFIP does not allow for the removal of land from the floodplain based on the placement of
fill (LOMR-F) in alluvial fan flood hazard areas. The NFIP will credit a major structural flood
control project, through the LOMR process, that will effectively eliminate alluvial fan flood
hazards from the protected area. Details about map revisions for alluvial fan areas can be found
in the Code of Federal Regulations at Title 44, Part 65.13.
Alluvial Fan Task Force
As stated in AB 2141 (Longville, Chapter 878, Statutes of 2004), the State of California
Department of Water Resources will convene an Alluvial Fan Task Force (AFTF). The AFTF
will produce an alluvial fan model ordinance for local communities and a recommendations
report to the legislature. As of March 2006, the model ordinance and report are projected to be
completed by 2007.
2.0 HIGHER STANDARDS RECOMMENDED BY THE STATE OF CALIFORNIA
This model ordinance meets the minimum standards required to participate in the National
Flood Insurance Program. Community adoption of higher standards can be applied towards
credit under the Community Rating System (CRS) program and result in reduced premiums
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for all flood insurance policy holders within the entire community. The State of California
recommends:
A. Freeboard.
• To elevate at least 2 feet above the minimum required base flood elevation, make
the following changes:
1. Modify Sections 5.1.C.1.a, 5.1.C.1.c, and 5.4.A.1 by replacing “elevated to or
above” with “elevated 2 feet above.”
2. Modify Section 5.4.B.1 by replacing “at or above” with “at least 2 feet
above.”
3. Replace Section 5.1.C.1.b with:
In an AO zone, elevated above the highest adjacent grade to a height 2 feet
above the depth number specified in feet on the FIRM, or elevated at least
4 feet above the highest adjacent grade if no depth number is specified.
B. Determining BFEs in Unnumbered A Zones.
• Replace “may” with “shall” in the second paragraph of Section 4.2.C to read:
“NOTE: A base flood elevation shall….”
C. Determining Market Value of Existing Structures.
• Replace the “Market value” definition in Section 2 with:
“Market value” shall be determined by estimating the cost to replace the
structure in new condition and adjusting that cost figure by the amount of
depreciation which has accrued since the structure was constructed.
1. The cost of replacement of the structure shall be based on a square foot
cost factor determined by reference to a building cost estimating guide
recognized by the building construction industry.
2. The amount of depreciation shall be determined by taking into account the
age and physical deterioration of the structure and functional obsolescence
as approved by the floodplain administrator, but shall not include
economic or other forms of external obsolescence.
Use of replacement costs or accrued depreciation factors different from those
contained in recognized building cost estimating guides may be considered
only if such factors are included in a report prepared by an independent
professional appraiser and supported by a written explanation of the
differences.
D. Increased Cost of Compliance (ICC) Coverage—Repetitive Loss Provisions.
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This provision allows communities the opportunity for flood insurance policy holders
to have ICC coverage made available in repetitive loss situations.
• Modify the definition of “Substantial damage” as follows:
“Substantial damage” means:
1. Damage of any origin sustained by a structure whereby the cost of
restoring the structure to its before damaged condition would equal or
exceed 50 percent of the market value of the structure before the damage
occurred; or
2. Flood-related damages sustained by a structure on two separate occasions
during a 10-year period for which the cost of repairs at the time of each
such event, on the average, equals or exceeds 25 percent of the market
value of the structure before the damage occurred. This is also known as
“repetitive loss.”
E. Non-conversion of Enclosed Areas Below the Lowest Floor.
• Insert/add the following section as Section 4.2.J.
A. Non-conversion of Enclosed Areas Below the Lowest Floor.
To ensure that the areas below the BFE shall be used solely for parking
vehicles, limited storage, or access to the building and not be finished for use
as human habitation without first becoming fully compliant with the
floodplain management ordinance in effect at the time of conversion, the
Floodplain Administrator shall:
1. Determine which applicants for new construction and/or substantial
improvements have fully enclosed areas below the lowest floor that are 5
feet or higher;
2. Enter into a “NON-CONVERSION AGREEMENT FOR
CONSTRUCTION WITHIN FLOOD HAZARD AREAS” or equivalent
with the City of Carmel-by-the-Sea. The agreement shall be recorded with
the Monterey County Recorder as a deed restriction. The non-conversion
agreement shall be in a form acceptable to the Floodplain Administrator
and County Counsel; and
3. Have the authority to inspect any area of a structure below the base flood
elevation to ensure compliance upon prior notice of at least 72 hours.
3.0 SPECIAL REQUIREMENTS
A. Crawlspace Construction.
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Communities with construction practices that result in crawl spaces with interior
floors up to 2 feet below grade have historically been in violation of the NFIP
requirements. FEMA Technical Bulletin 11-01 now provides accommodation for
these practices.
• Remove the following from “Lowest floor” definition in Section 2:
2. For residential structures, all subgrade enclosed areas are
prohibited as they are considered to be basements (see
“Basement” definition). This prohibition includes belowgrade
garages and storage areas.
• Add the following section into your ordinance at Section 5.1.C:
5.1.C.{X} Crawlspace Construction.
This sub-section applies to buildings with crawl spaces up to 2 feet below
grade. Below-grade crawl space construction in accordance with the
requirements listed below will not be considered basements.
a. The building must be designed and adequately anchored to resist
flotation, collapse, and lateral movement of the structure resulting
from hydrodynamic and hydrostatic loads, including the effects of
buoyancy. Crawl space construction is not allowed in areas with flood
velocities greater than 5 feet per second unless the design is reviewed
by a qualified design professional, such as a registered architect or
professional engineer;
b. The crawl space is an enclosed area below the BFE and, as such, must
have openings that equalize hydrostatic pressures by allowing for the
automatic entry and exit of floodwaters. For guidance on flood
openings, see FEMA Technical Bulletin 1-93;
c. Crawl space construction is not permitted in V zones. Open pile or
column foundations that withstand storm surge and wave forces are
required in V zones;
d. Portions of the building below the BFE must be constructed with
materials resistant to flood damage. This includes not only the
foundation walls of the crawl space used to elevate the building, but
also any joists, insulation, or other materials that extend below the
BFE; and
e. Any building utility systems within the crawl space must be elevated
above BFE or designed so that floodwaters cannot enter or accumulate
within the system components during flood conditions.
f. Requirements for all below-grade crawl space construction, in addition
to the above requirements, to include the following:
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1. The interior grade of a crawl space below the BFE must not be
more than 2 feet below the lowest adjacent exterior grade (LAG),
shown as D in figure 3 of Technical Bulletin 11-01;
2. The height of the below-grade crawl space, measured from the
interior grade of the crawl space to the top of the crawl space
foundation wall must not exceed 4 feet (shown as L in figure 3 of
Technical Bulletin 11-01) at any point;
3. There must be an adequate drainage system that removes
floodwaters from the interior area of the crawl space within a
reasonable period of time after a flood event, not to exceed 72
hours; and
4. The velocity of floodwaters at the site should not exceed 5 feet per
second for any crawl space. For velocities in excess of 5 feet per
second, other foundation types should be used.
B. Mudslide (i.e., Mudflow) Prone Areas. (Zone M)
• Communities with mudslide prone areas shall insert the following:
1. Definitions to Section 2:
"Area of special mudslide (i.e., mudflow) hazard″ is the area subject to
severe mudslides (i.e., mudflows). The area is designated as Zone M on the
Flood Insurance Rate Map (FIRM).
″Mudslide″ describes a condition where there is a river, flow or inundation of
liquid mud down a hillside, usually as a result of a dual condition of loss of
brush cover and the subsequent accumulation of water on the ground,
preceded by a period of unusually heavy or sustained rain.
″Mudslide (i.e., mudflow) prone area″ means an area with land surfaces and
slopes of unconsolidated material where the history, geology, and climate
indicate a potential for mudflow.
2. Section “5.{X} Mudslide (i.e., Mudflow) Prone Areas”:
5.{X} Mudslide (i.e., Mudflow) Prone Areas.
A. The Floodplain Administrator shall review permits for proposed
construction of other development to determine if it is proposed within
a mudslide area.
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B. Permits shall be reviewed to determine that the proposed site and
improvement will be reasonably safe from mudslide hazards. Factors
to be considered in making this determination include, but are not
limited to:
1. The type and quality of soils;
2. Evidence of ground water or surface water problems;
3. Depth and quality of any fill;
4. Overall slope of the site; and
5. Weight that any proposed development will impose on the slope.
C. Within areas which may have mudslide hazards, the Floodplain
Administrator shall require:
1. A site investigation and further review by persons qualified in
geology and soils engineering;
2. The proposed grading, excavation, new construction, and
substantial improvement be adequately designed and protected
against mudslide damages;
3. The proposed grading, excavations, new construction, and
substantial improvement not aggravate the existing hazard by
creating either on-site or off-site disturbances; and
4. Drainage, planting, watering, and maintenance not endanger slope
stability.
C. Erosion-prone areas. (Zone E)
• Communities with erosion prone areas shall insert the following:
1. Definitions into Section 2:
"Area of special flood-related erosion hazard″ is the land within a
community which is most likely to be subject to severe flood-related erosion
losses. The area may be designated as Zone E on the Flood Insurance Rate
Map (FIRM).
″Flood-related erosion″ means the collapse or subsidence of land along the
shore of a lake or other body of water as a result of undermining caused by
waves or currents of water exceeding anticipated cyclical level or suddenly
caused by an unusually high water level in a natural body of water,
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accompanied by a severe storm, or by an unanticipated force of nature, such
as a flash flood or an abnormal tidal surge, or by some similarly unusually and
unforeseeable event which results in flooding.
″Flood-related erosion area″ or ″Flood-related erosion prone area″ means
a land area adjoining the shore of a lake or other body of water, which due to
the composition of the shoreline or bank and high water levels or wind-driven
currents, is likely to suffer flood-related erosion damage.
″Flood-related erosion area management″ means the operation of an overall
program of corrective and preventive measures for reducing flood-related
erosion damage, including but not limited to emergency preparedness plans,
flood-related erosion control works, and floodplain management regulations.
2. Section “5.{X} FLOOD-RELATED EROSION-PRONE AREA” into
Section 5:
5.{X} FLOOD-RELATED EROSION-PRONE AREA
A. The Floodplain Administrator shall require permits for proposed
construction and other development within all flood-related erosionprone
areas known to the community.
B. Permit applications shall be reviewed to determine whether the
proposed site alterations and improvements will be reasonably safe
from flood-related erosion, and will not cause flood-related erosion
hazards or otherwise aggravate the existing hazard.
C. If a proposed improvement is found to be in the path of flood-related
erosion or would increase the erosion hazard, such improvement shall
be relocated or adequate protective measures shall be taken to avoid
aggravating the existing erosion hazard.
D. Within Zone E on the Flood Insurance Rate Map, a setback is required
for all new development from the ocean, lake, bay, riverfront or other
body of water to create a safety buffer consisting of a natural
vegetative or contour strip. This buffer shall be designated according
to the flood-related erosion hazard and erosion rate, in relation to the
anticipated ″useful life″ of structures, and depending upon the
geologic, hydrologic, topographic, and climatic characteristics of the
land. The buffer may be used for suitable open space purposes, such
as for agricultural, forestry, outdoor recreation and wildlife habitat
areas, and for other activities using temporary and portable structures
only.