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Wildfire Hazard Mitigation Handbook for Public Facilities

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Wildfire Hazard Mitigation Handbook for Public Facilities Wildfire Hazard Mitigation Handbook for Public Facilities Federal Emergency Management Agency October 2008 Table of Contents Introduction ���������������������������������������������������������������������������������������������������������������������������iii Purpose of the Handbook ����������������������������������������������������������������������������������������������������vi How to Use This Handbook �������������������������������������������������������������������������������������������������vii Overview of the Public Assistance Program ������������������������������������������������������������������������x Introduction to Wildfire Damage �����������������������������������������������������������������������������������������xii I� Buildings ������������������������������������������������������������������������������������������������������������������������� 1 A� Roof ���������������������������������������������������������������������������������������������������������������������� 4 B� Exterior Walls �����������������������������������������������������������������������������������������������������19 C� Vents �������������������������������������������������������������������������������������������������������������������26 D. Exterior Doors ����������������������������������������������������������������������������������������������������30 E. Ramps, Decks, and Other Attached Exterior Structures ���������������������������������35 F. Windows and Skylights ��������������������������������������������������������������������������������������44 G� Foundations �������������������������������������������������������������������������������������������������������52 H� Building Contents ����������������������������������������������������������������������������������������������58 I� Building Equipment �������������������������������������������������������������������������������������������61 II� Utilities ��������������������������������������������������������������������������������������������������������������������������67 III� Recreational Facilities ������������������������������������������������������������������������������������������������� 74 A� Recreational Facilities (Non-buildings) �������������������������������������������������������������75 B� Recreational Facilities (Buildings) �������������������������������������������������������������������77 IV� Fences and Walls���������������������������������������������������������������������������������������������������������78 V. Surface Transportation Safety Facilities ��������������������������������������������������������������������82 VI� Bridges �������������������������������������������������������������������������������������������������������������������������88 VII. Retaining Walls and Erosion-Control Structures �������������������������������������������������������96 Appendices A. Disaster Assistance Policy 9526.1...................................................................A-1 B� Considerations for Implementation of Mitigation Measures .........................B-1 C. Glossary and Keyword Index.............................................................................C-1 D. Defensible Space...............................................................................................D-1 E. Acronyms............................................................................................................E-1 F� References......................................................................................................... F-1 G� List of Contributors............................................................................................G-1 Table of Contents i INTRODUCTION The Federal Emergency Management Agency (FEMA) strives continuously to improve the delivery of disaster assistance to State, local, and tribal governments� One important goal of disaster assistance is to reduce the vulnerability of communities to damage from future disasters� This Wildfire Hazard Mitigation Handbook for Public Facilities (Handbook) is intended to assist facility owners affected by wildfire disasters by suggesting mitigation measures that can be taken to reduce the vulnerability of damaged facilities to future wildfire incidents. The measures described in this Handbook are applicable to the Public Assistance (PA) Program and are intended to help Applicants for assistance under the program identify options that can be implemented during post-disaster repair and rebuilding to reduce the potential for future damage� FEMA provides assistance to State, local, and tribal governments under the authority of the Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act), 42 United States Code §§ 5121-5206, as amended. Under the Stafford Act, FEMA is authorized to provide resources necessary to reduce the loss of life and property caused by emergencies and major disasters. FEMA works with Federal, State, local, and tribal liaisons to carry out this mission through a comprehensive emergency management program. FEMA provides funding and technical assistance to State, local, and tribal governments for a range of disaster preparedness and mitigation activities. The Pre-Disaster Mitigation (PDM) grant program provides funding to State, local, and tribal governments for mitigation planning and implementation of cost-effective mitigation projects prior to a disaster� After the President declares a major disaster, FEMA incorporates mitigation into recovery efforts through several mechanisms. Under Section 406 of the Stafford Act, FEMA provides funding for repair and rebuilding of disaster-damaged public facilities and those of certain private, non-profit entities through the PA Program. As part of the PA Program, FEMA may provide funding for cost-effective mitigation measures undertaken in the course of repairing or rebuilding damaged facilities, sometimes referred to as “406 Mitigation.” Section 404 of the Stafford Act also authorizes FEMA to provide funding to State, local, and tribal governments through the Hazard Mitigation Grant Program (HMGP), sometimes referred to as “404 Mitigation,” for the implementation of long-term mitigation measures� Introduction iii This Handbook focuses on mitigation that FEMA funds under the PA Program following Presidentially declared disasters in which assistance for the restoration of disaster-damaged facilities is authorized. The Handbook can also be useful for evaluating the mitigation options that are available to planners when developing long-term mitigation strategies or when considering measures to be funded under the HMGP, PDM Program, or other grant programs, even though these other programs are not described in the Handbook� The Problem The cost of response and recovery has escalated to unprecedented levels in recent years from the increased frequency and severity of disasters� Between 1999 and 2008, FEMA spent an average of $2.8 billion per year responding to major disasters. Of that amount, an average of $1�2 billion was spent repairing or replacing public facilities, which does not include response and recovery costs of other Federal agencies; State, local, and tribal governments; and losses of individuals and businesses� For more information, see www�fema�gov/government/ grant/pa/stat2�shtm� The Solution The most effective way to reduce excessive loss is through disaster preparedness and mitigation� To best achieve this goal, FEMA encourages the vigorous pursuit of the following objectives� Objective 1: Break the disaster-rebuild-disaster cycle. Until recently, this cycle was the most common mode of disaster recovery. Repairing substandard facilities to their pre-disaster condition does not protect the community from future damage or reduce long-term costs. The community should work to break this cycle through effective planning, identification of measures that can reduce the potential for future damage, and adoption of appropriate codes and standards for construction� Objective 2: Strengthen facilities so that they are able to withstand natural hazards more effectively. Cost-effective upgrades that reduce the probability of future damage to vulnerable facilities and that can be incorporated during rebuilding should be considered whenever possible� Objective 3: Ensure that communities address natural hazards as part of comprehensive planning� Comprehensive plans should include the community’s significant natural hazards and the goals and actions that reduce the community’s vulnerability to these hazards. iv Introduction The Result Achieving these objectives will substantially enhance community resilience and economic sustainability after a disaster, as shown in Natural Hazard Mitigation Saves: An Independent Study to Assess the Future Savings from Mitigation Activities, a study conducted by the Multihazard Mitigation Council and funded by FEMA (Multihazard Mitigation Council, 2005). The study indicates that hazard mitigation saves an average of $4 for every $1 of investment. Introduction v PURPOSE OF THE HANDBOOK This Handbook is intended for use by State, local, tribal, and private, non- profit Applicants for assistance, FEMA and State PA Group Supervisors, and FEMA and State PA Program Project Specialists. The Handbook can be used to identify potentially feasible mitigation measures that can be implemented during the repair and rebuilding of damaged facilities after a disaster� The Handbook applies to public and private, non-profit facilities eligible for funding
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