The Federal Emergency Management Agency's (FEMA)
Federal Insurance and Mitigation Administration (FIMA)
manages the National Flood Insurance Program (NFIP),
which is a cornerstone in the U.S. strategy to assist
communities to prepare for, mitigate against, and
recover from flood disasters. The NFIP was established
by Congress with passage of the National Flood Insurance
Act in 1968, to help reduce future flood damages through
NFIP community floodplain regulation that would control
development in flood hazard areas, provide insurance for
a premium to property owners, and reduce federal
expenditures for disaster assistance. The flood
insurance is available only to owners of insurable
property located in communities that participate in the
NFIP. Currently, the program has 5,555,915 million
policies in 21,881 communities3 across the United
States. The NFIP defines the one percent annual chance
flood (100-year or base flood) floodplain as a Special
Flood Hazard Area (SFHA). The SFHA is delineated on
FEMA's Flood Insurance Rate Maps (FIRM's) using
topographic, meteorologic, hydrologic, and hydraulic
information. Property owners with a federally back
mortgage within the SFHAs are required to purchase and
retain flood insurance, called the mandatory flood
insurance purchase requirement (MPR). Levees and
floodwalls, hereafter referred to as levees, have been
part of flood management in the United States since the
late 1700's because they are relatively easy to build
and a reasonable infrastructure investment. A levee is 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. A levee system is 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 accordance with sound
engineering practices. Recognizing the need for
improving the NFIP's treatment of levees, FEMA officials
approached the National Research Council's (NRC) Water
Science and Technology Board (WSTB) and requested this
study. The NRC responded by forming the ad hoc Committee
on Levee and the National Flood Insurance Program:
Improving Policies and Practices, charged to examine
current FEMA treatment of levees within the NFIP and
provide advice on how those levee-elated policies and
activities could be improved. The study addressed four
broad areas, risk analysis, flood insurance, risk
reduction, and risk communication, regarding how levees
are considered in the NFIP. Specific issues within these
areas include current risk analysis and mapping
procedures behind accredited and non-accredited levees,
flood insurance pricing and the mandatory flood
insurance purchase requirement, mitigation options to
reduce risk for communities with levees, flood risk
communication efforts, and the concept of shared
responsibility. The principal conclusions and
recommendations are highlighted in this report.
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