HMP

I. Introduction
1.1 Executive Summary
Carteret County has been exposed to a number of hazards, both natural and technological,
during its existence. In recent memory, Hurricanes Floyd, Fran, and Bertha left devastation
in their wakes. Even common events such as thunderstorms have caused extreme property
damage, injuries and even death due to lightning, hail, and downbursts. Tornadoes are not
uncommon in North Carolina, and even earthquakes are possible. Hazardous waste sites
exist within Carteret County. Drought and wildfires are always possible and extreme heat and
extreme cold can take its toll on vulnerable parts of the population.
Due to all the hazards listed above, it is very important that Carteret County take steps to
reduce, if not eliminate its economic, human, and environmental costs associated with natural
and technological disasters. The purpose of this document is to outline Carteret County’s
vulnerability to each of the hazards it faces and outline steps it can take to lessen, or ideally,
eliminate the impact of each of them. This document lists supporting agencies that can be
counted on for help, both technically and fiscally. It also documents the legal, political,
technological, fiscal, and institutional capability that Carteret County has to implement
mitigation measures within its boundaries.
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1.2 Carteret County, North Carolina
Carteret County was established in 1722 and contains 1,049 square miles, of which 534
square miles are land. This community is centrally located along North Carolina's coast.
Major highways serving Carteret County include U.S. Highway 70 and N.C. Highways 24
and 58. Transportation in Carteret County also includes rail service, airport, and port &
barge. The County's total taxable real property as of July 31, 1998 was $4,908,155,510.
Carteret County has experienced a noticeable shift towards a non-basic (service and retail)
economy over the last twenty-five years. This increased retail trade and growth in the service
industry are the result of seasonal demand and migration of retirees.
Largest Employers
Manufacturing
Name
Atlantic Veneer
Cross Creek Apparel
Bally Refrigerated Boxes
Hankison International
Creative Outlet
Jarrett Bay Boatworks
Veneer Technologies
Parker Marine Enterprises
Beaufort Fisheries
Employees
385
223
206
200
123
120
100
108
80
Non-Manufacturing
Name
Carteret County Public Schools
Carteret General Hospital
Food Lion
Carteret County
Wal-Mart
U.S. Coast Guard
Carteret Community College
Henry's Tackle & Sporting Goods
Lowe's
Sheraton Resort at Atlantic Beach
Harborview Nursing Home Service
N.C. Department of Transportation
Sears
McDonalds
Belk
Duke University Marine Laboratory
Sailors Snug Harbor
Town of Morehead City
Port of Morehead City
Carteret County News-Times
Hardees
Professional Nursing Services
Waste Industries
Carteret-Craven Electric Cooperative
Department of Corrections
N.C. Division of Marine Fisheries
K-Mart
Golden Corral
Employees
1197
800
349
330
320
300
270
227
176
150
140
134
120
115
105
102
93
91
90
88
87
85
85
80
78
77
73
65
Source: NC Employment Security Commission
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The largest employer of Carteret County residents is Naval Aviation Depot and Cherry Point
Marine Corps Air Station. 1,940 civilian employees at Cherry Point (32%) reside in Carteret
County. Out of a total payroll of $265,332,500 for the quad-county region of Carteret,
Craven, Jones, and Pamlico Counties, Carteret County employees earn approximately
$84,108,668. 621 active military employees reside in Carteret County. This accounts for
7.5% of the total active military population on base. 2,555 retired military people reside in
Carteret County.
3rd Qtr. 1997: Insured Employment only
2% - Agriculture: 405 workers
4% - Transportation/Communication/Public Utilities: 929 workers
4% - Wholesale: 957 workers
6% - Manufacturing: 1,714 workers
7% - Finance/Insurance/Real Estate: 1,272 workers
8% - Construction: 1,529 workers
17% - Government: 3,840 workers
21% - Service: 4,636 workers
31% - Retail/Wholesale Trade: 7,194 workers
Source: N.C. Employment. Security Com.; excludes uninsured workers
Unemployment Rates:
Month
January
February
March
April
May
June
July
August
September
October
November
December
1994
8.6
10.5
7.6
4.9
3.8
3.6
3.3
4.6
4.4
4.7
5.2
5.3
1995
8.6
9.1
6.5
5.9
4.3
3.7
3.3
4.1
4.3
4.0
5.4
7.4
1996
7.9
7.9
6.0
3.8
2.9
3.1
3.3
3.3
3.8
4.0
6.0
4.9
1997
7.9
6.2
4.6
3.2
2.9
3.2
2.6
3.5
3.3
3.9
5.2
6.8
1998
7.8
7.0
5.9
3.6
3.5
3.0
3.5
3.2
3.5
3.8
4.9
5.0
Source: N.C. Employment Security Commission
Carteret County has a commissioner/manager form of government. Carteret County’s seven
commissioners are nominated by district and voted on countywide. Carteret County has
eleven municipalities, each of which has its own town council. The type of government
structure varies from town to town.
Carteret County has graduated from a rural, sparsely populated region to an increasingly
urbanized region of higher population densities, with a corresponding increase in coastal
property values. The influx of people and the attendant residential and commercial
development, often in locations with a higher risk of severe storm impact, leaves Carteret
county and its municipalities at risk for repetitive weather related natural hazards.
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1.3
Planning Purpose
It is important to take steps to protect the citizens of Carteret County from a disaster before it
happens. An effective plan will improve the county's ability to deal with disasters and will
document valuable local knowledge on the most efficient and effective ways to reduce losses.
Preparing a plan to lessen the impact of a disaster before it happens will provide the
following benefits to the County:
•
Reduced public and private damage costs.
•
Reduced social, emotional, and economic disruption.
•
Better access to funding sources for mitigation projects.
•
Improved ability to implement post-disaster recovery projects.
The planning process used by the County is an attempt to address not only hazards, but to
find the best solutions, solve more than one problem with a single solution, and even
maintain or improve local environmental and economic integrity.
The planning process promoted public input and coordination among all the players. Doing
so helped generate ideas for solutions and ensured recognition and local ownership of
problems. Public input helped ensure that groups and individuals concerned about flood
damages took part in solving problems and implementing planned actions. Using this
planning process also means the County can increase chances for obtaining planning and
implementation funds from a variety of sources.
1.4
Hazard Mitigation Planning
A commonly used general definition for Hazard Mitigation is any sustained action that
reduces risk to citizens and minimize damages to structures, infrastructure, and natural
resources. FEMA defines it as acting before a disaster strikes to permanently prevent the
occurrence of the disaster or to reduce the effects of the disaster when it occurs. It is also
used effectively after a disaster to reduce the risk of a repeat disaster. According to FEMA,
the benefits of effective mitigation include the following:
•
Saving lives and reducing injuries.
•
Preventing or reducing property damage.
•
Reducing economic losses.
•
Minimizing social dislocation and stress.
•
Minimizing agricultural losses.
4
•
Maintaining critical facilities in functioning order.
•
Protecting infrastructure from damage.
•
Protecting mental health.
•
Lessening legal liability of government and public officials.
•
Providing positive political consequences for government action.
Mitigation deals primarily with four basic elements: Hazard, risk, vulnerability and disaster.
Hazards are natural, technological, or civil threats to people, property, and the environment.
Risk is the probability that a hazard will occur during a particular time period. Vulnerability
includes susceptibility to injury or damage from hazards. A disaster is a hazard occurrence
resulting in significant injury or damage. Thus, a flood is a natural hazard; flood risk is
defined in terms of the hundred-year flood; the people or buildings located within the
hundred-year flood zone are vulnerable; and a flood disaster is a flood that injures a number
of people, causes significant property damage, or both.
The emergency manager's job with respect to mitigation is to analyze the hazards faced by
the community, identify their associated risks, and reduce vulnerability to the hazards, thus
mitigating their potential disaster impact. To do this well, the emergency manager needs to
have both a political and a technical understanding of hazard mitigation. On the political side,
the manager is the major local advocate of good mitigation practice who can convince local
leaders to adopt and fund mitigation plans and policies. On the technical side, the manager is
the local expert who can handle and explain the specialized terms, methodologies, and
programs involved in hazard mitigation.
This hazard mitigation plan has been prepared, adopted, and implemented in accordance with
Disaster Mitigation Act of 2000 and Senate Bill 300. The DMA 2K criteria provide excellent
guidance on preparation of a hazard mitigation plan. There are 10 steps to the hazard
mitigation planning process:
1. Organize to prepare the plan.
2. Involve the public.
3. Coordinate with other agencies.
4. Assess the hazard.
5. Evaluate the problem.
6. Set goals.
7. Review possible strategies and measures.
8. Draft an action plan.
9. Adopt the plan.
10. Implement, evaluate, and revise the plan.
The following sections organize these steps into groups and provide details on each category.
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1.5
Planning Process Planning
1.5.1. Organization
Carteret County received a HMGP grant to develop a hazard mitigation plan in November of
1998. As required by the HMGP, a designated agent was selected by County Commissioners
to oversee the development of the plan. This represents the first step in the plan
development. The Grant was awarded to the Carteret County Emergency Services office,
under the direction of the department head. The Emergency Services Office then reserved
the services of a professional planning consultant (Geographic Technologies Group, Inc.) to
provide assistance with data collection and the development of Geographic Information
Systems (GIS) technology for hazard mitigation. A departmental needs assessment was then
conducted to inventory hazard management/mitigation capabilities in terms of resources,
facilities, hardware and software. The information for the needs assessment, and also a
vulnerability assessment and a capability analysis was collected in number of ways.
The planning process was overseen by the Carteret County Hazard Mitigation Advisory
Committee (Table I-1), which met regularly during the planning process. The Team also
identified other interested parties who were invited to participate in planning meetings and
who were also sent copies of draft documents for review and comment. Members of the
Hazard Mitigation Advisory Committee consisted of representatives from Carteret County,
and the Towns of Bogue, Cape Carteret, Cedar Point, Newport and Peletier.
Table I-1: HMP Advisory Committee / Interested Parties
Local Government/Agency
Carteret County Planning
Carteret County GIS
Carteret County Inspections
Carteret County Administration
Position
Planner
GIS Technician
Director
County Manager
Carteret County Info. Tech.
Carteret County Health Dept.
Carteret County Emergency Services
Director
Health Supervisor
Emergency Services Director
Town of Bogue
Town of Cape Carteret
Town of Cedar Point
Town of Newport
Town of Peletier
Town Mayor or designee
Town Mayor or designee
Town Manager or designee
Town Manager or designee
Town Manager or designee
Description of the Planning Process
In the summer of 2003 Carteret County realized that a countywide comprehensive planning
process that involved all of the smaller municipalities within the County would be the key to
making mitigation a countywide effort. Using a comprehensive planning forum would make
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it possible for the County to assist the towns with creating a proactive rather than reactive
approach to hazard mitigation and to ensuring that all lands subject to hazards were identified
and managed appropriately to reduce future exposure.
In May 2003, Carteret County staff worked as a team to create the draft plan. The
comprehensive planning process was organized to ensure that individual mitigation projects
and initiatives undertaken by the County are carried out in a cooperative manner such that all
local initiatives work together and no single action or project detracts from the overall goal of
creating a safer environment for all citizens of Carteret County. The planning process also
played an important part in generating community understanding of and support for hazard
mitigation by creating a forum for discussion and publicizing the need for hazard mitigation
planning.
One method was the use of digital hazard identification data from the North Carolina Center
for Geographic Information and Analysis. This data provided a valid starting point for
gathering information for the vulnerability assessment. Interviews with local county
government and municipality officials were used to identify existing capabilities. The
interviews were helpful developing the critical professional relationship needed to build a
mitigation network. These personal interviews also allowed in-depth questioning when a
particular question or response prompted additional issues. Where interviews were not
possible, survey questionnaires were used to obtain data regarding each department’s specific
programs and authorities. These surveys, like the interviews, sought information from
appropriate representatives about their department’s day-to-day and emergency programs. In
addition, questionnaires allow respondents the opportunity to make recommendations for
improvement in their own agencies and in others where it might not otherwise be welcomed.
The DEM recommends that each community include a capability assessment as part of its
mitigation plan. A capability assessment, as explained in the Local Hazard Mitigation
Planning Manual, describes the legal authority vested in local governments to pursue
measures to mitigate the impact of natural hazards. The assessment also evaluates the
community's political willpower, institutional framework, technical know-how, and ability to
pay for mitigation. In addition, the capability assessment is more than a mere inventory of
existing mitigation measures and organizations with hazard mitigation responsibility. It
should include evaluation of the "de facto" mitigation measures - those which may be
designed for another purpose, but which, nevertheless, have an effect (either positive or
negative) on mitigation. The capability assessment can, therefore, provide a mechanism to
cite those systems that exist and are working in the community to reduce hazard vulnerability
(whether such measures were designed for hazard mitigation purposes or not). This list of
"success stories" helps avoid duplication of effort when new systems and programs are
recommended.
Following the recommendations of the DEM, Carteret County has taken the necessary action
to determine its capability to develop an exemplary hazard mitigation plan. The Capability
Assessment for Carteret County included the following categories:
•
Legal—An inventory of the powers available to local governments enumerated in the
North Carolina General Statutes to identify which can be used to craft hazard
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mitigation measures at the local level, and also assess legislation that may impose
limits on certain mitigation efforts.
•
Institutional—A description of the type of government, including an inventory of key
decision-making positions (both long range and day-to-day).
•
Political Capability—Discussion as to how mitigation can be inserted into everyday
decision-making, and aid in de-politicizing the issue.
•
Fiscal—Inventory of sources of funding available to communities to implement local
hazard mitigation plans, including both government and private programs.
Similar techniques were used in data collection for both the needs and capability
assessments. The information gathered assisted the County in making suggestions for
suitable mitigation opportunities.
In addition to the items listed above, Carteret County also seeks to identify local policies or
practices which may weaken existing mitigation efforts or even exacerbate risk.
1.5.2. Public Involvement
Prior to beginning work on the implementation plan, a “kick-off” meeting was held to
describe the project approach, the goals and objectives of the project, technical services
available to the county and municipalities, the project schedule and expected deliverables.
The intent of this initial meeting was to enable all participating communities and County
departments a chance to comment on the scope of services.
Public Input
1st Public Meeting
On January 20, 1999, Carteret County gave public notice of the start of the hazard mitigation
planning process at the Carteret County Board of Commissioners public meeting. The
meeting was advertised in the Carteret County News-Times (local weekly newspaper).
Neighboring communities, State and Federal Agencies, businesses, academia, nonprofits, and
other interested parties were invited to participate in the planning process. These individuals
were invited by advertising a public announcement in the Carteret County News-Times as
well as through email and on the County website.
The first meeting followed the completion of the data collection and vulnerability assessment
phases of the planning process.
In addition to the meeting, public announcement of the meeting provided an address and
phone number for persons who were unable to attend the meeting but who wanted to receive
more information about the planning process. During the planning process, drafts of the plan
were also available for public review at the Carteret County Emergency Services
Department.
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2nd Public Meeting
A second public meeting was held July 13, 2005 to receive public input and comment about
the proposed mitigation plan. There was no public comment.
HMP Team Meetings
The Hazard Mitigation Planning (HMP) Team, consisting of representatives from interested
County departments, met five times between August 2004 to June 2005 (Table I-2).
Table I-2: Plan Meeting Schedule
Meeting Date
November 1998
January 20, 1999
January 28, 1999
August 10, 2004
March 9, 2005
April 22, 2005
May 25, 2005
June 8, 2005
July 13, 2005
December 5, 2005
Topic
Project Initiation
Notice of 1st Public Meeting for HMP
1st Public Meeting
HMP Team Meeting
HMP Project Initiation with HMP Team
HMP Team Meeting
HMP Team Meeting
HMP Team Meeting
2nd Public Meeting
Public Hearing / Plan Adoption
The Team generally followed the planning steps as outlined in “Keeping Natural Hazards
from Becoming Disasters – A Mitigation Planning Guidebook for Local Governments”, NC
Division of Emergency Management.
3rd Public Meeting
A third public meeting was held on December 5, 2005. The meeting was advertised in the
Carteret County News-Times (local weekly newspaper). The Board of Commissioners was
advised this plan has been approved by the NC Emergency Management and by FEMA, it
was presented to the Carteret County Board of Commissioners, the Town of Bogue, Town of
Cape Carteret, Town of Cedar Point, Town of Newport and the Town of Peletier for
adoption.
This process was in accordance with state guidelines, which hold that before adopting or
amending any ordinance, the County Board of Commissioners must hold a public hearing on
the matter. Specifically, the board is required to notify the public of the hearing by
advertising it once a week for two successive calendar weeks in a newspaper having general
circulation in the area. In addition, a notice should not be published less than ten days or
more than 25 days before the date of the hearing (See GS 153A-323; Procedure for adopting
or mending ordinances).
In general, it was anticipated that opposition to the final plan would be low given the recent
history of the County with hazardous events. That is, it has been demonstrated in disaster
9
planning literature that in some cases citizens place mitigation high on their agendas as much
as a year and a half after the most recent events. Given that North Carolina faced three major
hurricanes in less than four years, most county residents understand the risk they face and
favor a proactive approach.
Planning Process Steps
Step1. Hazard Identification and Analysis
This step involved describing and analyzing the twelve natural hazards to which Carteret
County could be susceptible. Represents the results of this planning step, includes historical
data on past hazard events and establishes an individual hazard profile and risk index for
each hazard based upon frequency, magnitude and impact. The summary risk assessment at
the end of this section serves as the foundation for concentrating and prioritizing local
mitigation efforts.
Step 2. Community Vulnerability Assessment
This step involved research and mapping, using best available data, to determine and assess
current conditions. Contains the results of this planning step, includes a description of
community characteristics, an assessment of current conditions, a list of critical facilities,
projections for future growth and summary conclusions including an assessment of both
current (2000) and projected (2020) future conditions. This section also contains two
summary maps that depict 1) multi-hazards (floodplains and past hazard events that lend
themselves to mapping,); and 2) critical facilities (those facilities without which each
community could not continue to function for long).
Step 3. Community Capabilities Assessment
The step included a comprehensive examination and evaluation of capacity to implement
mitigation strategies, a review of local government authority for hazard mitigation planning,
a description of local government organization and staff, a review of technical and fiscal
capabilities, and a summary statement of local commitment to hazard mitigation planning.
The purpose of this step, was to identify any gaps or weaknesses in local programs or
regulations, to determine if any existing programs/regulations had the effect of hindering
hazard mitigation, and to identify programs/regulations that could be revised or amended to
strengthen local hazard mitigation efforts.
Step 4. Form Interim Conclusions
At the conclusion of Steps 1 - 3, the HMP Advisory Committee developed summary
conclusions regarding individual vulnerability to natural hazards and individual capabilities
for dealing with hazards.
Step 5. Community Goals and Objectives
Steps 1 through 3 also established the foundation for moving forward with developing an
action program for the community to undertake. The HMP Advisory Committee worked to
formulate and agree upon general goals and objectives for hazard mitigation before moving
forward with developing specific mitigation strategies.
Step 6. Mitigation Strategies
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Next the Advisory Committee cooperated in formulating mitigation strategies/actions. This
step also included assigning responsibility for implementation of each action.
Step 7. Procedures for Monitoring, Evaluating and Reporting Progress
The HMP Advisory Committee developed a procedure for an annual review and progress
report on the plan. The review process provides for the HMP Advisory Committee and the
general public to have input on plan review.
Step 8. Procedures for Revisions and Updates
The HMP Advisory Committee developed a procedure for a comprehensive review and
update of the Plan on a 5-year schedule. The procedure provides for the inclusion of the
public.
Step 9. Adoption
Carteret County held a public hearing on the Plan (when approved by NCEM) and then
adopted by resolution.
1.5.3. Coordination
In developing the HMPI the NCDEM placed emphasis on inter-disciplinary technical
assistance. To achieve this, the NCDEM assembled a team of technical and planning experts
to assist the HMPI communities. In the process, the state effectively linked key institutions
and organizations that have roles in various aspects of hazard mitigation, including
government agencies, academia, consultants, and the private sector. For example, technical
assistance for plan formulation was provided by the Mitigation Planning Initiative Group
(MPIG), from the University of North Carolina at Chapel Hill. The North Carolina Center
for Geographic Information and Analysis (CGIA) provided data on hazards and vulnerability.
Other state agencies were involved, including the Division of Community Assistance and the
Division of Coastal Management. An outside consultant was brought in to provide GIS
training to HMPI communities to support hazard identification and vulnerability assessment.
In addition to the above, Carteret County was careful to solicit the input of as many officials
from the local municipalities, county departments, regional state offices and nongovernmental organizations (e.g., the Red Cross) as possible.
II. Goals, and Objectives
After Hurricane Fran, the County realized that its response to emergencies needed to be
improved and decided to develop a more effective solution to mitigating the impact of these
recurring events on a permanent basis. Various types of solutions were considered and
agreed to for implementation. The goals of this exercise were the following:
•
•
Increase public awareness through identification of flood prone and repetitive loss
areas and determination of primary reasons for flooding;
To protect human life and health;
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•
•
•
•
•
•
Minimize damage to existing drainage/flood protection works;
Protection of open spaces, wetlands and marshlands;
Discourage further development of areas in floodplains/SFHA and areas subject to
hazards.
Minimize damage to existing buildings subject to natural hazards.
Restoration of natural areas to provide natural storage and flood peak attenuation.
Compliment the existing Zoning Ordinance and other applicable codes, with regard to
floodplains and open spaces to mitigate the impact of flooding.
III. Multi-Hazards in Carteret County
A. Introduction
The development of a hazard mitigation plan consists of five steps – identification and
analysis of natural hazards that could impact the community, assessment of the community’s
vulnerability to natural hazards, assessment of the community’s capability to respond to a
natural disaster, assessment of the community’s current policies and ordinances that affect
hazard mitigation, and development of hazard mitigation strategies that can be implemented
to reduce future vulnerability.
This section includes a description and history of each type of natural hazard event in
Carteret County using the best available data. Members of the Carteret County Mitigation
Advisory Committee agreed that all natural hazards that would affect Carteret County would
also affect the Towns of Bogue, Cape Carteret, Cedar Point, Newport and Peletier. The only
natural hazard that would affect each municipality different would be flooding. Event
histories are based on a search of two national databases - the National Climatic Data Center
(NCDC - http://www4.ncdc.noaa.gov/cgi-win/wwcgi.dll?wwEvent~Storms ) and the Spatial
Hazard Events and Losses Database for the United States (SHELDUS* http://go2.cla.sc.edu/hazard/db_registration ). All historical data searches were conducted for
the period 1950 to 2003. Other data from the County is included as available.
*Note: SHELDUS information concerning certain hazards causing fatalities and injuries are
in decimal form. Casualties and damages are often listed without specific spatial reference,
for instance severe thunderstorms affected Eastern NC. In order to assign the damage
amount to a specific county, SHELDUS divides the total number of fatalities or injuries by
the number of counties affected. For example, if a severe thunderstorm affected Hyde,
Onslow and Carteret counties and resulted in 1 fatality, each county would receive a 0.25
rating.
B. Hazard Analysis - Evaluation Method
Each natural hazard is evaluated for three characteristics:
1. Likelihood of Occurrence, i.e., expected frequency;
2. Likely Range of Impact, i.e., predictable size and location of impact; and
3. Probable Level of Impact, i.e., estimated strength and damage potential.
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Likelihood of Occurrence
The likelihood, or frequency, of occurrence of a particular hazard within a specific
jurisdiction will be classified in one of four categories. These four categories are
explained in Table A - 1.
13
Table A-1: Explanation of Hazard Likelihood of Occurrence
Likelihood
Highly Likely
Frequency of Occurrence
Near 100% probability in the next year.
Between 10% and 100% probability in the next year or at least one
Likely
chance within the next ten years.
Between 1% and 10% probability in the next year, or at least one
Possible
chance in the next 100 years.
Less than 1% probability in the next year, or less than one chance in
Unlikely
the next 100 years.
Source: “Keeping Natural Hazards from Becoming Disasters”, NC Division of
Emergency Management, November 2001, p. 11.
Likely Range of Impact
The likely range of impact, or predictable size and location, of a particular hazard within
a specific jurisdiction will be classified in one of three categories. These three categories
are described in Table A-2.
Table A-2: Description of Likely Range of Impact
Size of Area
Description
Small
10 % or less of the total jurisdictional area
Medium
10 % to 40 % of the total jurisdictional area
Large
40 % to 100 % of the total jurisdictional area
Source: “Keeping Natural Hazards from Becoming Disasters”, NC Division of
Emergency Management, November 2001, p. 11.
Probable Level of Impact
The probable level of impact, or estimated strength and damage potential, of a particular
hazard within a specific jurisdiction is classified in one of four categories as described in
Table A-3.
Table A-3: Description of Hazard Probable Level of Impact
Level
Area Affected
Impact1
Catastrophic
More than 50%
• Multiple deaths.
• Complete shutdown of facilities for 30
days or more.
• More than 50% of property is severely
damaged.
Critical
25 to 50%
• Multiple severe injuries.
• Complete shutdown of critical facilities
for at least 2 weeks.
• More than 25% of property is severely
damaged.
Limited
10 to 25%
• Some injuries.
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•
•
Negligible
Less than 10%
•
•
•
•
Complete shutdown of critical facilities
for more than 1 week.
More than 10% of property is severely
damaged.
Minor injuries.
Minimal quality of life impact.
Shutdown of critical facilities and
services for 24 hours or less.
Less than 10% of property is severely
damaged.
Source: “Keeping Natural Hazards from Becoming Disasters”, NC Division of Emergency Management, November 2001, p. 12.
1
The impact of a natural hazard is a combination of the severity of the occurrence, the
magnitude of the event, and the density of human activity in the affected area.
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Composite Hazard Index
These three sets of classification categories - likelihood of occurrence, likely range of impact, and probable level of impact – have been combined to
create a composite hazard index for each natural hazard. The combined hazard index describes vulnerability in general terms of “low”, “moderate”
or “high” hazard susceptibility. An individual hazard index is developed at the end of each of the twelve hazard sections. Table A-33 at the end of
Appendix A is a composite of the twelve hazard index scores.
Table A-4: Composite Hazard Index Rating
Size of area
Small
(1)
Likelihood of
Occurrence
Large
(3)
Small
(1)
Catastrophic
(4)
Impact
1
Medium
(2)
Medium
(2)
Large
(3)
Small
(1)
Critical
(3)
Medium
(2)
Large
(3)
Small
(1)
Limited
(2)
Medium
(2)
Large
(3)
Negligible
(1)
Highly Likely
(4)
9
10
11
8
9
10
7
8
9
6
7
8
Likely
(3)
8
9
10
7
8
9
6
7
8
5
6
7
Possible
(2)
7
8
9
6
7
8
5
6
7
4
5
6
Unlikely
(1)
6
7
8
5
6
7
4
5
6
3
4
5
Each variable was assigned a number from 1 (lowest) to 3 or 4 (highest) rating. A score from 9 to 11 is a “high hazard risk”; from 6 to 8 “moderate hazard risk”; and from 3 to 5 “low hazard risk”.
16
3.1 Hazard Identification and Analysis
3.1.1
Multi-Hazards in the Southeast
The South is defined as the following states: Texas, Louisiana, Mississippi, Alabama,
Arkansas, Oklahoma, Florida, Virginia, Kentucky, Georgia, Tennessee, South Carolina,
and North Carolina.
Within these states, the following are considered the hazards that are most prevalent.
• Coastal Erosion
• Droughts
• Earthquakes
• Expansive Soils
• Extreme Heat
• Floods
• Hurricanes
• Land Subsidence
• Storm Surges
• Thunder and Lightning
• Tornadoes
• Windstorms
3.1.2
Hazards That Can Affect Carteret County
Carteret County is vulnerable to the following hazards:
• Drought/Extreme Heat
• Earthquake
• Wildfire
• Floods
• Winter Storms/Freezes
• Hurricanes
• Severe Storms/Tornadoes
• Storm Surge
• Coastal Erosion
• Hazardous Materials
17
3.2 Natural Hazards in Carteret County
3.2.1
Drought/Extreme Heat
3.2.1.1 Drought Description
A drought is roughly defined as a condition of abnormally dry weather within a
geographic region where some rain is usually expected. This is caused by a lack of
precipitation in conjunction with wind, high temperatures, and low humidity. This lack
of rain in a region that expects it results in a number of problems. There are varying
degrees of severity in a drought. This severity depends on the demand on water in a
region, duration, and intensity. The problems that a drought can bring include:
•
•
•
•
•
•
Diminished water supplies or reduction of water quality.
Undernourished livestock and wildlife.
Crop damage
Increased fire hazards
Reduced forest productivity
Damage to fish and wildlife habitat
Indirect Impacts:
• Reduced income for farmers and agribusiness
• Increased prices for food and lumber
• Unemployment
• Reduced tax revenues because of reduced expenditures
• Increased crime
• Foreclosures on bank loans to farmers and agribusiness
There are four types of droughts:
1. Meteorological Drought – This is a reduction of precipitation over time. This
definition is regionally based. In the United States, this is indicated by less
then 2.5mm of rainfall in 48 hours. This is the first indication of a drought.
2. Agricultural Drought – This happens when the soil moisture cannot meet the
demands of a crop. This type of drought happens after a meteorological
drought but before a hydrological drought.
3. Hydrological Drought – This refers to reduction in surface and subsurface
water supplies. This is measured through streamflow and lake, reservoir, and
ground water levels.
4. Socioeconomic drought – This occurs when water shortages affect people,
either in terms of water supply or economic impacts (i.e. loss of crops so price
increases).
It is difficult to determine when a drought is approaching because of slowly accumulating
effects. Also, there is no commonly accepted approach for assessing drought risk.
However, there are several indices that can be helpful in defining risk. The Palmer
18
Drought Severity Index is especially well known. This index is used to measure drought
impact on agriculture and water supplies. The National Drought Mitigation Center is
using a newer index, the Standardized Precipitation Index, to monitor moisture supply
conditions. Distinguishing traits of this index are that it identifies emerging drought
months sooner than the Palmer Index and that it is computed on various time scales.
The National Drought Mitigation Center was founded in 1995. This group prepares
drought policy, conducts preparedness research, conducts training seminars and
conferences, and maintains current databases related to droughts. A wealth of
information on droughts can be found on their web page at: http://enso.unl.edu/ndmc/
Droughts tend to first begin to be noticed at the local level. The first decision makers to
become involved are local or municipal water suppliers, or property owners. However,
by law, most of the authority for allocating water rests with the state government. North
Carolina has an Emergency Operations Procedures for Drought Emergencies manual to
provide an effective means of assessing and responding to the impact of drought on the
water supply and agriculture in North Carolina. The federal government also plays a
significant role in drought mitigation. The Federal Emergency Management Agency
(FEMA) undertakes hazard mitigation, preparedness planning, relief operations, and
recovery assistance for droughts. Other federal agencies that become involved when there
is a drought is the Fish and Wildlife Service, EPA, USGS, USDA, Army Corps of
Engineers, etc. In all, at least 35 units--including agencies, bureaus, and services--within
10 different Federal departments, as well as 7 independent agencies and several bilateral
organizations, currently exercise some responsibility for water programs and projects.
3.2.1.2 History of Droughts in Carteret County
Ryan Boyles, Assistant State Climatologist of the State Climate Office of North Carolina,
when asked about drought in Carteret County gave the statement:
“Unfortunately, due to the difficulties with defining drought, we don't really have
a county by county break down of when droughts occurred. Drought is not an
easily defined event - there is no criteria such as "3 weeks with less than 10%
normal rain is a drought.
Files that we have on drought are more long term in nature, such as the 1986-88
drought, which affected the entire state, but had different affects on different local
areas. Affects of drought differ from local area to area depending on economics,
agriculture, municipal water use, etc. This is one of the reasons why it is so hard
to define whether a drought occurred or just a dry spell.”
Carteret County has not been subjected to any extended drought since the mid 1980s.
However, there have been many dry spells. The following chart breaks down the
precipitation by year and month in Carteret County for the last 50 years. The average
annual rainfall from 1949 – 1999 was 55.70 inches.
Monthly Precipitation Recorded at Morehead, NC from 1948-2000.
19
MOREHEAD CITY 2 WNW, NC (UCAN: 14222,COOP: 315830)
Year
1948
1949
1950
1951
1952
1953
1954
1955
1956
1957
1958
1959
1960
1961
1962
1963
1964
1965
1966
1967
1968
1969
1970
1971
1972
1973
1974
1975
1976
1977
1978
1979
1980
1981
1982
1983
1984
1985
1986
1987
1988
1989
Jan
-0.99
1.83
0.56
2.44
4.94
3.58
2.56
2.11
2.46
4.11
2.22
5.47
1.66
4.78
3.70
6.87
1.40
5.50
4.29
5.22
2.75
2.61
5.87
5.20
4.66
3.63
4.74
3.24
2.91
8.91
9.55
5.92
1.93
9.30
3.54
2.35
3.77
3.87
7.39
6.88
3.64
Feb
-4.58
2.22
4.23
4.79
5.68
1.31
1.70
4.62
3.38
2.85
3.77
6.50
4.28
1.58
5.02
6.25
3.95
4.04
5.37
1.32
3.47
4.57
3.90
9.14
4.86
4.31
4.79
1.74
1.95
1.43
5.54
2.10
2.01
5.73
10.61
4.16
7.14
1.76
3.57
3.68
3.88
Mar
-1.54
2.65
3.91
4.81
5.12
3.03
2.66
3.54
3.86
4.44
5.80
3.45
2.51
5.58
1.43
1.53
4.50
3.71
0.32
2.05
4.69
5.42
5.52
3.35
2.88
3.27
2.26
2.59
5.54
4.09
3.06
6.47
3.74
5.69
10.02
5.03
4.25
1.66
5.10
3.02
7.93
Apr
-2.09
1.23
3.71
3.08
1.49
2.48
1.84
3.35
0.26
5.81
4.05
3.60
5.56
5.38
2.53
5.43
1.30
0.49
2.56
3.74
1.88
1.65
3.63
1.08
3.97
3.35
4.84
0.51
1.43
3.52
2.43
2.00
0.61
3.13
5.30
3.83
0.64
0.33
3.16
4.48
5.95
May
3.06
2.63
2.14
1.72
3.77
4.68
4.74
2.50
6.97
4.07
5.11
1.40
4.38
4.07
3.90
2.18
3.25
2.43
9.25
3.80
2.86
1.87
3.00
4.20
9.42
4.40
6.23
3.82
5.71
5.70
4.71
5.49
1.67
10.53
1.85
3.13
10.34
5.66
1.42
1.10
7.06
2.32
Jun
2.41
10.61
4.34
1.54
1.65
7.70
0.62
1.58
7.44
3.81
7.86
2.83
3.84
5.31
9.30
6.43
2.64
5.50
10.24
2.23
3.77
4.87
3.47
3.43
3.83
5.20
5.44
5.06
6.68
3.59
1.80
4.22
5.15
1.44
5.73
4.18
6.94
2.27
4.34
2.61
3.15
3.11
Jul
3.20
9.57
5.54
6.26
5.28
5.77
6.51
6.20
4.45
1.11
0.61
8.50
9.56
2.64
4.59
8.50
9.30
9.06
10.76
9.12
9.48
9.66
8.31
5.27
9.14
1.74
1.94
6.39
6.69
5.08
8.17
7.16
9.85
7.12
6.70
4.31
8.54
6.06
7.10
4.45
3.83
7.51
Aug
4.26
11.72
3.11
1.60
5.68
17.27
5.77
22.45
4.21
3.27
9.11
3.97
1.66
6.63
7.37
1.21
4.62
3.09
4.16
6.33
3.84
3.27
5.27
9.98
5.16
11.33
8.38
4.25
10.84
2.73
3.52
2.75
2.11
12.22
3.95
2.90
2.60
5.92
14.73
9.53
11.70
10.95
Sep
5.26
9.75
2.10
3.75
3.82
4.33
3.98
21.42
5.96
6.45
4.54
4.06
4.60
-5.70
2.59
5.48
2.33
6.00
1.96
8.09
3.55
3.03
10.00
5.15
3.65
4.10
6.89
4.19
5.29
0.31
8.20
5.52
0.82
7.18
4.61
15.06
10.58
1.73
7.52
2.49
12.71
Oct
6.53
1.31
6.23
2.82
2.52
0.87
2.62
1.57
8.67
2.48
9.60
6.78
1.80
0.17
0.93
4.56
4.58
2.77
2.10
2.15
9.48
1.69
3.77
11.44
3.58
1.64
3.39
3.76
3.98
4.75
2.19
1.88
4.57
0.56
3.60
7.38
0.74
11.55
2.78
2.86
3.22
6.22
Nov
7.92
3.05
1.99
5.30
7.14
4.88
2.26
2.14
0.91
7.24
2.83
2.88
1.28
1.79
6.31
5.68
0.89
1.24
1.37
1.48
4.71
2.77
2.62
1.97
7.74
0.92
2.46
1.59
3.45
4.68
5.08
4.73
3.31
2.52
3.16
9.15
3.57
10.64
3.35
6.34
2.83
2.43
Dec
6.14
2.67
4.02
3.29
2.62
4.16
4.82
0.69
0.74
5.00
3.74
5.65
1.83
1.62
4.72
2.51
1.73
1.15
3.60
4.35
2.11
5.74
2.73
1.85
4.45
11.48
4.12
5.54
6.24
4.53
3.65
3.75
10.52
6.17
4.86
5.24
2.23
1.13
6.45
1.91
1.55
5.84
Ann
38.78
60.51
37.40
38.69
47.60
66.89
41.72
67.31
52.97
43.39
60.61
51.91
47.97
36.24
60.14
46.34
52.57
38.72
61.22
43.96
56.67
46.21
46.45
67.06
67.24
56.73
50.62
53.93
55.86
48.18
47.38
58.76
59.19
49.67
60.88
70.37
65.39
69.61
49.52
55.54
53.89
72.49
20
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
3.16
9.41
8.08
5.84
6.90
7.34
4.89
3.57
7.43
3.39
AVG
4.50 4.01
2.27
1.38
3.83
4.40
1.62
4.19
1.81
2.77
12.36
2.23
3.81
4.53
5.35
5.59
5.63
2.27
4.79
3.81
2.42
2.56
3.13
2.79
1.84
2.94
0.40
1.88
1.83
3.94
4.85
2.93
5.98
3.80
5.27
1.46
5.35
1.82
4.26
2.35
6.88
3.50
0.28
5.81
2.64
3.41
4.88
8.42
1.06
2.75
1.22
4.37
4.09
7.66
2.00
3.09
3.60
2.28
14.49
5.25
5.87
2.47
4.20
10.62
11.50
4.51
5.56
5.86
7.50
3.04
15.49
13.22
1.30
5.12
3.25
5.82
3.30
6.92
15.77
8.57
6.31
11.21
4.66
5.35
4.67
11.10
5.63
6.15
4.96
2.46
0.98
4.13
2.73
1.53
5.64
3.66
5.65
3.40
2.05
6.74
1.79
3.11
3.16
4.69
2.97
3.02
7.56
1.48
6.24
5.48
5.15
1.58
3.98
2.83 4.22
4.29
6.19
6.86
5.93
4.16
3.75
4.01
38.77
62.69
57.04
54.84
56.08
52.01
69.65
50.73
70.75
54.70
Information was provided by the State Climate Office of North Carolina at NC State University.
A severe drought is shown by a Palmer Drought Severity Index (PDSI) at –3.0 or less.
The following maps were produce by the National Drought Mitigation Center to show the
Palmer Drought Index in climate divisions.
21
22
Drought Climatology
Greatest Number of Consecutive Days of Precipitation <= 0.01 inches
Maximum, Minimum, and Mean
Station
Fayetteville
Goldsboro
Greenville
Raleigh
Maximum: # of days
(dates)
38 (8/27/1968 –
10/03/1968)
50 (9/17/1933 =
11/05/1933)
36 (10/01/1933 –
11/05/1933)
40 (9/19/1973 –
10/28/1973)
Minimum: # of days
(dates)
10 (12/09/1996 –
12/18/1996)
10 (10/29/1972 –
11/07/1972
8 (11/17/1951 –
11/24/1951)
11 (6/08/1894 =
6/18/1894)
Mean
20.594
19.415
19.859
19.320
3.2.1.3 Extreme Heat
3.2.1.4 Extreme Heat Description
Extreme heat in the Southeast occurs when there are high temperatures combined with
high humidity. This is called a heat wave when it occurs for a long period of time.
Extreme heat tends to be more intense in urban centers rather then rural areas. People
suffer from heat related illnesses when the body’s temperature control is overloaded.
These diseases can cause brain or organ damage and even death.
Extreme heat can cause the following illnesses:
Heat Stroke: The body is unable to control its temperature. It will rise very rapidly.
Sweating does not occur. This can cause death or permanent disability. Those at risk
include outdoor laborers, elderly, children and people in poor health.
Heat Exhaustion: This occurs when there is an excessive loss of water and salt released
in sweat. Elderly people, people with high blood pressure, and people working or
exercising are most prone to this.
Heat Syncope: Associate with exercise by people not properly acclimatized to the
weather. This results in sudden loss of consciousness. Consciousness will return when
the person lies down. Little or no permanent harm occurs to victims.
Heat Cramps: This occurs in people who are sweating excessively during extreme
exercise or work.
Heat Rash: Skin irritation caused by excessive sweating. Most common in young
children.
Heat Index in Relation to Heat Disorders
Danger Category
Heat Disorders
Apparent Temperature °F
IV Extreme Danger
III Danger
>130
105-130
Heatstroke or sunstroke imminent
Sunstroke, heat cramps, or heat
23
exhaustion likely; heat stroke
possible, with prolonged
exposure and physical activity
II Extreme Caution
Sunstroke, heat cramps, and heat
exhaustion possible with
prolonged exposure and physical
activity
I Caution
Fatigue possible with prolonged
exposure and physical activity
Source: National Weather Service, 1997.
90 - 105
80 - 90
Extreme heat causes about 200 deaths a year. In 1980, a severe heat wave caused more
then 1700 deaths in the Central and Southern states. In addition to people, livestock and
crops can be affected. A strain can be put on the power supplies. Transportation routes
and bridges can be damaged.
Poverty of some urban areas may contribute to the problem. Low-income people are
unable to afford cooling devices and the energy needed to operate them.
3.2.1.5 History of Extreme Heat in Carteret County
In 1993, a drought/heat wave across the Southeastern United States caused approximately
$1 billion in damage and many deaths.
3.2.1.6 Hazard Probability
Drought vulnerability is difficult to predict due to different definitions, indices, and
categories of drought. However, according to personnel at the Southeast Regional
Climate Center, North Carolina has a moderate chance to experience a severe drought or
‘severe heat’. Carteret County has the potential to hit a maximum heat index of 110 –
115 degrees in summer. The highest temperature ever recorded in North Carolina, 110
degrees, was in Fayetteville on August 21, 1983. With drought/extreme heat having been
rated a 7 for Carteret County, this hazard will be addressed in the plan.
3.2.2
Earthquakes
3.2.2.1 Description
An earthquake is a series of vibrations induced in the earth's crust by the abrupt rupture
and rebound of rocks in which elastic strain has been slowly accumulating. It is caused by
a slip on a fault, which is a thin zone of crushed rock between two blocks of rock. The
fault can be any length, from a few millimeters to thousands of kilometers. It is a fracture
in the crust of the earth along which rocks on one side have moved relative to those on
the other side. An earthquake occurs when stresses in the earth's outer layer push the
sides of the fault together. Stress builds up and the rocks slip suddenly, releasing energy
in waves that cause the shaking.
Earthquakes can cause severe damage to property and extensive loss of life. The
earthquake will not kill by itself – a person can’t ‘shake’ to death. However, the
earthquake will cause extensive structural damage and collapse that could cause fatalities
and injury.
24
Earthquakes can occur at any time of the day and it is not related to any weather patterns.
An earthquake cannot be prevented, although mitigation measures can be taken,
particularly structure measures, to reduce the impact that an earthquake has on the
surface.
The National Earthquake Information Center records 12,000 to 14,000 earthquakes a
year. The majorities are very low vibrations and cannot be felt by people on the surface.
Scale graphic obtained from the National Oceanic and Atmospheric Administration
3.2.2.2 History of Earthquakes in Carteret County
Contrary to popular belief, earthquakes actually do occur in North Carolina. North
Carolina is affected by a fault in Charleston and also by the New Madrid fault in
Missouri. The largest earthquake ever recorded in North Carolina occurred on February
21, 1916. The epicenter was near Waynesvillle. This earthquake caused chimney and
window damage.
Charleston, South Carolina, on August 31, 1886, had a very damaging earthquake that
was felt all the way to New York, Cuba, Mississippi, and Bermuda. It caused 110
fatalities and caused property damage within 200 miles of Charleston, including
structural damage in Raleigh.
25
In North Carolina, the most recent earthquake recorded was in Statesville on June 5,
1998.
Earthquake Epicenters in North Carolina and Portions of Adjacent States (1698 – 1997)
Geology from North Carolina Geological Survey, 1985, Geologic Map of North Carolina (Scale 1:500,000). Earthquake data from
1698 – 1992 are from Virginia Polytechnic Institute and State University. Data from 1993 – 1997 are from the U.S. Geological
National Earthquake Information Center. Map created by North Carolina Geological Survey
3.2.2.3 Hazard Probability
Earthquakes pose minor risk to the eastern half of North Carolina, including Carteret
County. Most of the great earthquakes (magnitude 8.0 or more) occur along the plate
boundaries, not in the eastern and Midwestern U.S. On a scale of 1 to 6, relative to the
conterminous US, earthquake vulnerability in Carteret County is rated at a 1. With
earthquakes having been rated a 5 for Carteret County, this hazard will not be addressed
in the plan.
3.2.2.4 Previous Occurrences
26
Earthquakes in North Carolina – 1973 to Present
Map produced by a query with the National Earthquake Information Center. Data is from 1973 to present.
3.2.3
Wildfires
3.2.3.1 Description
There are three types of wildfires.
• Surface Fire – This type burns slowly along the floor of a forest. This is the most
common type of wildland fire. This type of fire can damage or even kill trees.
• Ground Fire – Usually occurs from a lightning strike. This type of fire burns on
or below the forest floor.
• Crown Fire – This fire is quickly spread by the wind. It tends to jump among the
crowns of trees.
Wildland fires are generally characterized by very thick smoke.
When a wildfire is first reported, a Carteret County fire department responds. If they are
unable to control the fire, then the NC Division of Forest Service County Headquarters is
called in. They use a bulldozer and plow to put a break around the fire. If this is
unsuccessful, the Forest Service County Headquarters has the option of calling in
reinforcements from any of the NC Forest Service’s headquarters and districts in North
Carolina. If the fire requires even more resources then this, under the Southeast
Compact, all forest service agencies in the southeast agree to help one another.
For fire prevention, the NC Division of Forest Service does control burns every three
years, at a landowner’s request, in large wooded areas throughout the county. They also
develop pre-suppression lines, where tractors put in firebreaks between the woods and
highly populated areas. As far as education, everyone has heard of ‘Smokey Bear’. There
is also law enforcement for prevention, as well as for issuing tickets and citations to
people who let their fires escape.
A problem that is becoming more prevalent in recent years involves the Wildland-Urban
interface. People who want to be close to nature move into areas that have historically
been wildland. The Wildland/Urban interface is defined as the area where structures and
27
other human development meet or intermingle with undeveloped wildland or vegetative
fuels. Since 1985, Urban/Wildland interface fires have destroyed 9,000 homes in the
United States.
3.2.3.2 History of Wildfires in Carteret County
Carteret County has 336,365 acres with total forest land of 157,678 acres. The following
information was obtained from the North Carolina Division of Forest Resources –
Carteret County Headquarters.
Area of Timberland by Ownership Class* (acres)
All Ownership
Federal
Government
State Government
County and
Municipal
Forest Industry
Private
Ownership
157,678
44,109
71
121
41,262
67,180
*Forest Statistics for North Carolina, 1990
Carteret County Summary of Fires by Cause
Year
Lightning
Campfire
Smoking
Debris
Incendiary
Machine
Use
Railroad
Children
Misc.
Total
# of
Fires
Total #
of
Acres
Burned
Avg.
size of
Fires
Acres
1994
1995
1996
1997
1998
Total
Avg. #
/5
Years
1
1
0
2
1
5
1
1
1
1
0
0
3
1
3
3
1
2
0
9
2
25
19
13
20
8
85
17
7
14
1
10
3
35
7
0
4
0
1
1
6
1
0
0
0
0
0
0
0
9
5
6
4
12
36
7
3
1
1
0
3
8
2
49
47
23
39
29
187
37.4
490
1529
416
1148
460
4043
809
10
32.5
18.1
29.4
15.9
21.6
21.6
% of 5
Year
Total
2.7%
1.6%
4.8%
45.5%
18.7%
3.2%
.1
19.3%
4.3%
100
For comparison’s sake, the following table lists the number of wildfires in the entire state
of North Carolina between 1993 and 1997.
North Carolina Five-Year Summary of Fires
Year
1993
1994
1995
1996
1997
Number of Fires
4701
5721
5248
4264
4,539
Number of Acres
25,304
26,625
21,251
15,960
16,274
3.2.3.3 Hazard Probability
Historical statistics on the economic impact of wildfires, including resource and property
losses, are available for specific large incidents. However, reporting is incomplete and
national statistics are not compiled. Therefore, accurate estimates of the economic
impacts of wildfires cannot be made. However, virtually all the continental U.S. has
experienced wildfires. According to the North Carolina State Forest Service, the wildfire
28
risk in Carteret County is moderate. This was based on the number of wildfires and the
number of acres burned between 1950 and 1993. With wildfires having been rated a 5
for Carteret County, this hazard will not be addressed in the plan.
3.2.4
Floods
3.2.4.1 Description
Flooding occurs from a number of weather and non-weather related reasons. Floods
typically occur from prolonged rainfall, but they can also occur from snowmelt, ice jams,
and dam failures. Floods also occur in all 50 states, particularly in low-lying
communities, near a water source, or downstream from a dam.
Flooding can cause destruction to property and injury and death to people. Since 1900,
10,000 lives have been lost to flooding. A 1987 study concluded that over 9 million
households and $390 billion in property are at risk from the 1 percent annual chance
flood.
There are seven types of flooding in the United States: Out of the seven types of floods,
Carteret County can be affected by the following five types of floods.
Riverine Flooding: This is the most common type of flooding. This occurs when a river
or streams overflows its banks. In large rivers, this usually occurs after a serious, largescale weather event. In streams, this can occur from more localized weather systems.
Flash Floods: Flash floods typically encompass a quick rise of high velocity water and
large amounts of debris. Factors that contribute to flash flooding include the length and
intensity of rain and the steepness of watershed and stream gradients. Other factors
influencing flash floods include the amount of watershed vegetation, natural and artificial
water storage, and the configuration of the streambed and floodplain. Flash floods not
only occur from weather systems, but also from a dam failure, or breakup of ice. This
type of flood poses the most risk to property and lives. Because of the rapid rise of the
water levels, a large percentage of flood deaths occur from motorists who underestimate
the depth and velocity of the floodwaters and attempt to cross flooded areas. This
typically occurs when a weather event quickly drops an extensive amount of water.
Walls of water from this type of event can reach 15 to 20 feet and are generally
accompanies by all types of debris.
Dam Break Floods: these results from structural failures of dams.
Local Drainage or High Groundwater Levels: Heavy precipitation from local weather
events may produce flooding outside of delineated floodplains. If the local soil cannot
handle precipitation through infiltration and runoff, the water may accumulate. During
winter, frozen ground and accumulated snow will contribute to this problem. This type
of flooding generally occurs in flat and urban areas. Even if there is no flooding, high
groundwater levels of water are of concern. Basements are susceptible to leakage in this
situation.
29
Fluctuating Lake Levels: Lake levels can change over a short period of time, over a
season, or on a long-term basis. Heavy rain or snow can influence levels. All lakes are
susceptible to changes in water level, but the problem seems to occur most often in lakes
that are landlocked or have inadequate outlets for maintaining a balance between in and
outflow. These types of lakes can fluctuate from 5 to 15 feet over an extended period of
time.
Due to the severe consequences from flooding, local governments should pay close
attention to flood warnings and forecasts. These mitigation measures decrease property
damage by an estimated $1 billion annually. The National Weather Service is
responsible by law for weather forecasting and warning. The NWS uses the stream
gauging stations that the USGS operates and maintains nationwide, including 98 percent
of gages used for real-time forecasting.
3.2.4.2 History of Floods in Carteret County
The following information lists the flooding in Carteret County back to January, 1993.
Table A-14: Flood Event Data for Carteret County 1994–2004
(Including the Towns of Bogue, Cape Carteret, Cedar Point, Newport and Peletier)
Location
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Date
12/23/1994
1/15/1995
9/8/1995
10/8/1996
5/5/1998
8/30/1999
9/15/1999
9/16/1999
10/17/1999
7/27/2002
8/28/2002
9/01/2002
10/11/2002
8/23/2003
9/18/2003
6/30/2004
8/30/2004
Totals
Time
9:30 AM
7:00 AM
10:00 AM
9:00 AM
1:00 AM
8:00 AM
4:13 PM
3:51 AM
1:19 PM
7:05 PM
9:40 AM
1:45 PM
6:00 PM
3:30 PM
1:00 PM
2:30 PM
9:10 AM
Type
Flooding
Coastal Flood
Coastal Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Flash Flood
Damages
0
0
500K
0
0
0
0
0
0
0
0
0
0
0
0
0
0
$500,000
Source: National Climatic Data Center, http://www4.ncdc.noaa.gov/cgi-win/wwcgi.dll?wwEvent~Storms and SHELDUS (Spatial Hazard
Events and Losses Database for the United States, http://go2.cla.sc.edu/hazard/db_registration.
There are flood hazard areas in Carteret County that are subject to periodic inundation.
These results in loss of life, property, health and safety hazards, disruption of commerce
and governmental services, extraordinary public expenditures of flood protection and
relief, and impairment of the tax base. All of these situations adversely affect the public
health, safety, and general welfare. These flood losses are caused by the cumulative
effect of obstructions in floodplains, which lead to an increase in flood heights and
30
velocities. Although floodwaters generally recede in coastal communities relatively
quickly, high tides can cause the sounds to flood again.
Carteret County typically does not experience any problems with wastewater and water
treatment plants due to flooding. However, excessive rain has in the past caused failures
resulting in the release of raw sewage.
There is only one hog operation in Carteret County, located in Newport. This farm did
not experience any problems with flooding. Carteret County Extension believes that the
chance for flooding on this farm in the future is very remote. There is, however, an old
abandoned chicken operation with a lagoon located by Harlow Creek. Although this has
not experienced any flooding, it may pose an environmental and health hazard. Please
contact Ray Harris with the Carteret County Extension for information on this facility.
He can be reached at (252) 728-8421.
3.2.4.3 Repetitive Loss
Under the National Flood Insurance Reform Act of 1994, the definition of "repetitive loss
structure" is a building covered by a contract for flood insurance that has incurred floodrelated damages on 2 occasions during a 10-year period. The 10-year period ends on the
date of the event for which a second claim is made, in which the cost of repairing the
flood damage, on the average, equaled or exceeded 25% of the market value of the
building at the time of each such flood event.
According to FEMA officials, approximately 84,000 NFIP-insured buildings nationwide
have suffered multiple flood losses since 1968. About 36,000 of those buildings have
suffered two or more flood losses within a 10-year period that exceeded $1,000 each.
Repetitive loss properties account for about a third, 32 percent, of NFIP losses. To date,
the total amount paid in claims for repetitive loss properties is $3.2 billion.
In addition, despite clear successes, FEMA director James Witt believes that there is
considerable work yet to be accomplished, not only under NFIP, but also under the
disaster relief and recovery programs of FEMA. Specifically, FEMA has two critical
goals: 1) to reduce the disaster relief expenditures to communities that are mired in a
damage-repair, damage-repair cycle and 2) to reduce the flood insurance subsidy to the
owners of structures that have experienced repetitive flood losses. All counties should
create a repetitive loss inventory.
3.2.4.4 Hazard Probability
Carteret County has a high risk for flooding. This was determined using several sources.
First, the USGS provided average precipitation and surface runoff data for 1951 – 1980.
Second, FEMA provided flash flood incidence for 1986 – 1995. Hurricane threatened
areas were considered secondary in importance. The threat of urban flooding was also
considered by using the 1996 county population. With floods having been rated a 7 for
Carteret County, this hazard will be addressed in the plan.
31
3.2.5
Winter Storms/Freezes
3.2.5.1 Description
The occurrence of large snowstorms, ice storms, and severe blizzards has a substantial
impact on communities, utilities, and transportation systems, and often results in loss of
life due to accidents or hypothermia. In addition to the impacts on transportation, power
transmission, communications, agriculture, and people, severe winter storms can cause
extensive coastal flood-erosion, and property loss.
Severe winter storms display themselves in a wide variety of ways including heavy snow,
blizzards, freezing rain, ice pellets, and extreme cold. Severe winter storms are
extratropical cyclones fueled by strong temperature gradients and an active upper-level
jet stream. The storms that hit North Carolina usually form in the Gulf of Mexico or off
the southeast Atlantic Coast. In North Carolina, very few of these result in a blizzard.
Between 1988 and 1991, the National Weather Service recorded 372 deaths that could be
attributed to snowfall, ice storms, or extreme cold weather. This equates to an average of
93 deaths a year. In 1991, winter snows and blizzards were responsible for the deaths of
37 people and injuries to 350 nationwide. The Superstorm of March, 1993 was among the
worst non-tropical weather events in the United States, according to the Natural Disaster
Survey Report published by NOAA (1994). The Superstorm caused more then $2 billion
in property damage across portions of 20 states and the District of Columbia. It slowed
commerce, snarled traffic, disrupted communications and power, and drove tens of
millions of people indoors for extended periods of time during the worst storm.
Damage to Southeastern states, particularly in southeastern Georgia and central eastern
North Carolina, centered on beachfront property and marinas. Still, heavy inland
agricultural damage caused by extremely high winds was reported. Altogether, 9 deaths
and $13 billion in damages were related to this storm. North Carolina reported 2 deaths,
7 indirect deaths, 13 injuries, and $13.5 million in damages.
3.2.5.2 History of Severe Winter Storms in Carteret County
The following information lists the severe winter weather in Carteret County back to
January, 1993.
Table A-30: Snow and Ice Storm Data for Carteret County 1996- 2004
(Including the Towns of Bogue, Cape Carteret, Cedar Point, Newport and Peletier)
Location
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Date
2/2/1996
2/10/1997
1/19/1998
1/27/1998
2/3/1998
2/17/1998
3/2/1998
Time
4:00 AM
12:00 PM
11:00 AM
5:00 AM
12:00 PM
4:00 AM
11:30 AM
Type
Winter Storm
Winter Storm
Winter Storm
Winter Storm
Winter Storm
Winter Storm
Ice Pellets
32
Location
Carteret County
Carteret County
Carteret County
Date
1/3/2002
1/23/2003
1/9/2004
Time
3:00 PM
9:00 AM
12:00 PM
Carteret County
Carteret County
1/25/2004
2/16/2004
1:00 PM
12:00 AM
Carteret County
12/20/2004
3:00 AM
Type
Winter Storm
Winter Storm
Winter
Weather/mix
Winter Storm
Winter
Weather/mix
Winter Storm
Source: National Climatic Data Center, http://www4.ncdc.noaa.gov/cgi-win/wwcgi.dll?wwEvent~Storms and SHELDUS (Spatial Hazard
Events and Losses Database for the United States, http://go2.cla.sc.edu/hazard/db_registration.
3.2.5.3 Hazard Probability
Severe winter weather usually shows itself in the mountains of North Carolina, due to the
elevation. However, the coast of North Carolina is also susceptible to a few winter
storms. This usually shows itself in freezing precipitation events such as ice pellets and
freezing rain. With winter storms having been rated a 5 for Carteret County, this hazard
will not be addressed in the plan
Carteret County has a ‘Low’ probability of experiencing severe winter weather. This
rating was based on susceptible areas. For the potential for heavy snow, climate divisions
1 and 2 were assigned a “Moderate” likelihood and Climate divisions 3 – 8 (Carteret
County is Climate Division 7) were assigned a “Low” likelihood. Then, all counties
classified “Low” were upgraded to “Moderate” if they fell within the region where cold
air damming occurs in the eastern U.S.
3.2.6
Hurricanes
3.2.6.1 Description
Hurricanes are the most devastating natural events to hit the east coast. More then 36
million people reside in the counties along the Gulf of Mexico and the Atlantic Ocean.
This exposes a large amount of a state’s population and property to tropical events.
Hurricanes need a certain number of conditions to occur. This includes a pre-existing
weather disturbance, warm tropical oceans, moisture, and relatively light winds aloft. If
these all come together, they can produce a hurricane which can lead to violent winds,
high waves, torrential rains, storm surge, tornadoes, and floods. Basically, a hurricane is a
type of tropical cyclone, which is a low pressure system that generally forms in the
tropics.
Hurricane eyes move around 10 - 15 mph. Hurricanes typically move westward at first
and become stronger as time goes on. Hurricanes then typically turn from the equator
and pick up speed. Most hurricanes turn east after they reach temperate latitudes. Many
end up as weak storm centers over cool oceans. However, it is the ones that don’t that
North Carolina counties need to worry about.
33
If a hurricane continues to move west and encounters land, strong winds and heavy rain
can hit an area for many hours. As the ‘eye’ of the hurricane hits an area, the high winds
and rain stop. Less then an hour later, the eye passes and the damaging winds and rains
continue. Hurricanes tend to weaken after reaching land because they are not receiving
energy from the evaporation of warm seas. The wind also encounters friction from the
rougher land surface. Winds tend to die down first, while heavy rains continue.
When a hurricane is initially formed, a number of agencies and departments keep track of
its progress. A multitude of information is collected, including pressure, temperature,
and wind speeds. This information is very important to formulate predictions on landfall
and severity, so communities in its path can be warned.
Housing is very susceptible to damage from hurricanes. The greatest wind forces on
houses occur on their sides. Since hurricane force winds push for extended periods of
time, it can push a frame out of alignment or lift it off its foundation. It seeks out weak
points such as windows and doors. The wind can also pick up heavy debris and smash it
against residences. When a wind blows against a house, it puts pressure on the side it is
blowing against. The opposite side of the house experiences low pressure. Therefore, if
the wind enters the house from the blowing side (i.e. blowing out a window, etc), the
sudden pressure buildup in the house can cause doors, windows, and other weak places to
pop out. Then, the rain combines forces with the wind and destroys the interior of the
house. If the wind doesn’t destroy a house, then residents need to worry about the heavy
rain producing enough floodwaters to enter the house. A typical hurricane drops 6 – 12
inches of water on the area it crosses. Tornadoes often form on the fringes of the storm.
Porch roofs and large overhangs often fail in hurricane wind due to poor connections,
particularly base and roof connections of support columns. Porch and overhang failures
often caused severe damage to otherwise well connected main roofs. Failure of corroded
metal connecters is a contributor to wind damage.
Each year, about 10 tropical storms develop. Many of these remain over the ocean, but
approximately 6 become hurricanes each year. Hurricane strength is defined by the
Saffir/Simpson Hurricane scale.
The Saffir/Simpson Hurricane Scale
Category
1
2
3
Definition-Effects
Winds : 74-95 mph (64-82 kt)
No real damage to building structures. Damage primarily to unanchored mobile homes,
shrubbery, and trees. Also, some coastal flooding and minor pier damage.
Winds : 96-110 mph (83-95 kt)
Some roofing material, door, and window damage. Considerable damage to vegetation, mobile
homes, etc. Flooding damages piers and small craft in unprotected moorings may break their
moorings.
Winds : 111-130 mph (96-113 kt)
Some structural damage to small residences and utility buildings, with a minor amount of
curtainwall failures. Mobile homes are destroyed. Flooding near the coast destroys smaller
structures with larger structures damaged by floating debris. Terrain may be flooded well inland.
34
4
5
Winds : 131-155 mph (114-135 kt)
More extensive curtainwall failures with some complete roof structure failure on small residences.
Major erosion of beach areas. Terrain may be flooded well inland.
Winds : 155+ mph (135+ kt)
Complete roof failure on many residences and industrial buildings. Some complete building
failures with small utility buildings blown over or away. Flooding causes major damage to lower
floors of all structures near the shoreline. Massive evacuation of residential areas may be required.
3.2.6.2 History of Hurricanes in Carteret County
The following information lists the hurricanes in Carteret County back to January, 1993.
Table A-20: Hurricanes Affecting Carteret County 1994-2004
(Including the Towns of Bogue, Cape Carteret, Cedar Point, Newport and Peletier)
Hurricane
H. Gordon
H. Felix
Tr. Storm
Tr. Storm
Hurricane
Hurricane
Hurricane
Tr. Storm
Hurricane
Hurricane
Tr. Storm
Hurricane
Hurricane
Tr. Storm
H/typhoon
H/typhoon
H/typhoon
Total
Date
11/17/1994
8/15/1995
6/18/1996
6/18/1996
7/12/1996
8/29/1996
9/4/1996
10/8/1996
8/26/1998
8/30/1999
9/1/1999
9/14/1999
10/16/1999
9/10/2002
9/17/2003
8/3/2004
8/14/2004
Time
Deaths
Injuries
5:20PM
0
1:00 PM
1:00 PM
10:00 AM
10:00 AM
6:00 PM
1:00 AM
12:00 AM
12:00 AM
12:00 AM
11:00 PM
5:00 PM
5:00 AM
6:00 PM
12:00 AM
12:00 AM
0
1
0
0
1
0
4
0
0
0
0
13
1
0
0
0
0
20
0
0
0
0
10
0
4
0
0
0
0
0
0
0
0
0
0
14
Damages
Property
Crop
500K
0
500K
500K
1M
0
0
0
140.3M
127.0M
0
0
792.2M
0
0
0
6.4M
117.0M
0
0
21.3M
39.9M
410.6M
413.6M
0
0
114K
0
435.6M
14.3M
7.6M
0
6.6M
2.9M
$1.8B
$715. M
Source: National Climatic Data Center, http://www4.ncdc.noaa.gov/cgi-win/wwcgi.dll?wwEvent~Storms and SHELDUS (Spatial Hazard
Events and Losses Database for the United States, http://go2.cla.sc.edu/hazard/db_registration.
35
High water mark elevations, in feet above Mean Sea Level, surveyed after Hurricane Fran. Graphic
from FEMA.
3.2.6.3 Hazard Probability
All counties in North Carolina are subject to hurricane hazards, but the greatest impact
from hurricanes occurs in the 18 counties bordering the shoreline and sounds.
Carteret County has a ‘High’ chance every year of experiencing a hurricane. This was
determined by looking a combination of susceptible areas and frequency of hurricanes
1900 – 1996 by county. Climate divisions 6, 7, and 8 (Carteret County is Climate
Division 7) were assigned a ‘Moderate’ likelihood, while climate divisions 1 – 5 were
assigned a ‘low likelihood. Then, if a county experienced any direct strikes from
hurricanes between 1900 and 1996, it was assigned a ‘High’ likelihood. With hurricanes
having been rated a 9 for Carteret County, this hazard will be addressed in the plan
3.2.7
Severe Storms/Tornadoes
3.2.7.1 Severe Storm Description
Severe Storms are widely underrated in the damage, injury, and death they can bring.
Lighting always precedes thunder because lightning causes thunder. As lightning goes
through the atmosphere, it can generate temperatures up to 54,000 degrees Fahrenheit.
This intense heating generates shockwaves which turn into sound waves, thus generating
thunder.
Warm, humid conditions encourage thunderstorms as the warm, wet air updrafts into the
storm. As warm, moisture rich air rises it forms cumulus nimbus clouds, thunderstorm
clouds, usually with a flattened top or an anvil shape, reaching to 40,000 feet or more. If
36
this air is unstable, the conditions are then there to cause hail, damaging winds and
tornadoes.
As a thunderstorm grows, electrical charges build up within the clouds. Oppositely
charged particles exist at the ground level. These forces become so strong that the air’s
resistance to electrical flow is overcome. The particles from both top and bottom then
race towards each other to complete a circuit. Charge from the ground then surges
upward at nearly one third the speed of light to produce lightning.
Each year lightning kills about 50 – 100 people, mostly during the spring/summer season;
with typical thunderstorms lasting anywhere from ½ to 1 hour. Most lightning strikes
occur in the afternoon. 70% occur between noon and 6:00pm. This is because as air
temperatures warm, evaporation increases. Sundays have 24% more deaths from
lightning then any other day, followed by Wednesday. Lightning reports reach their peak
in July.
Men are hit by lightning four times more often then women. Men account for 84% of
lightning fatalities and 82% of injuries. However, the actual number of deaths and
injuries due to lightning have decreased over the last 35 years. This is attributed to
improved forecasts and warnings, better lightning awareness, more substantial buildings,
socioeconomic changes, and improved medical care.
The National Weather Service recorded 3,239 deaths and 9818 injuries due to lightning
strikes between 1959 and 1994. Only 20% of lightning strikes cause immediate death.
70% of lightning strike victims that survive experience residual affects, most commonly
affecting the brain (neuropsychiatric, visual, and auditory). These effects can develop
slowly.
Lightning strike victims have typically been walking in an open field or swimming before
they are struck. Other lightning victims have been holding metal objects such as golf
clubs, fishing poles, hay forks, or umbrellas.
Damage to property from direct or indirect lightning can take the form of an explosion, a
burn, or destruction. Damage to property has increased over the last 35 years. This is
probably due to increased population. The National Weather Service recorded 19,814
incidents of property damage between 1959 and 1994. Yearly losses are estimated at
$35,000 million by the National Weather Service. This amount is compiled from
newspaper reports, but many strikes are not reported. The National Lightning Safety
Institute estimates damages at $4 to $5 billion. This information is compiled from
insurance reports and other sources that keep track of weather damages.
Thunderstorm winds also cause widespread damage and death. Thunderstorm ‘straight
line’ wind occurs when rain-cooled air descends with accompanying precipitation. A
thunderstorm is considered severe when winds exceed 57.5mph. At the very extreme,
winds of 160 mph have been recorded. These winds can smash buildings and uproot and
snap trees, and are often mistaken for tornadoes.
37
‘Downbursts’ can occur during a thunderstorm. This is an excessive burst of wind that is
sometimes confused with tornadoes. These are defined as a surface wind in excess of
125 mph caused by a small scale downdrift from the base of a convective cloud. A
downburst occurs when rain-cooled air within a convective cloud becomes heavier than
its surroundings. Since cool air is heavier than warm air, it rushes toward the ground
with a destructive force. Exactly what triggers the sudden downrush is still unknown.
A downburst appears to strike at a central point and blow outwards. (Picture a bucket of
water dashed against grass. If it hits straight on, the grass will be flattened in a circular
pattern. If it hits at an angle, the grass will be flattened in a teardrop pattern).
Downbursts resulted in 268 deaths and 8 related accidents between 1974 and 1982.
Downbursts can be further classified into two categories:
Microburst: Less than 2 1/2 miles wide at the surface, duration less than 5 minutes and
winds up to 146 miles per hour.
Macroburst: Greater than 2 1/2 miles wide at the surface, duration of 5-30 minutes with
winds up to 117 miles per hour.
Hail forms from falling rain in severe thunderstorms. It is kept aloft by an updraft, and
instead of going down, it goes up. Because of this, the rain freezes. Drops of super
cooled water hit these pellets of ice and freeze on. This pellet may move up and down
several times by the updraft, thus allowing it to become bigger as water freezes on it.
After it gets to a certain size, gravity takes over and it falls to the ground. It falls as ice
since it is not in the warm air below a thunderstorm long enough to melt. An updraft of
55 + mph is required to turn hail into the size of a golf ball.
Hailstorms typically cause more then $1 billion in damages to property and crops
throughout the U.S. Long stemmed vegetation shreds easily and is particularly
vulnerable to hailstorms.
Hail is also able to cause damage to buildings and
automobiles. Hail rarely causes any fatalities.
Hailstorms occur more frequently during the late spring and early summer.
3.2.7.2 History of Hail in Carteret County
Table A-23: Hail Storm Data for Carteret County 1978 – 2003
(Including the Towns of Bogue, Cape Carteret, Cedar Point, Newport and Peletier)
Location or County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Date
8/26/1978
4/9/1979
4/9/1979
2/23/1980
5/24/1983
9/15/1984
9/15/1984
Time
1230
1545
1720
1843
1240
1735
1830
Type
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Magnitude
1.75 in.
1.00 in.
0.75 in.
1.00 in.
1.75 in.
1.75 in.
1.75 in.
38
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Wildwood
Morehead City
Beaufort
Cape Carteret
Ocean
Newport
Beaufort
South River
South River
Atlantic Beach
Newport
Beaufort
Sea Level
Atlantic
Sea Level
Newport
Newport
Newport
9/15/1984
3/24/1985
5/17/1985
5/17/1985
7/2/1986
4/15/1987
4/27/1989
5/13/1989
5/29/1996
5/29/1996
7/27/1996
6/3/1997
5/4/1998
5/4/1998
5/17/1998
5/25/2000
5/28/2000
8/13/2000
8/16/2000
8/16/2000
4/17/2001
5/28/2001
6/6/2001
3/6/2003
8/23/2003
8/23/2003
1830
1410
1351
1430
2015
1645
1930
1230
10:05 PM
10:13 PM
11:50 PM
2:45 PM
7:03 PM
7:25 PM
11:05 AM
3:50 PM
2:42 PM
2:43 PM
11:17 PM
11:33 PM
3:20 PM
11:50 AM
4:40 PM
4:11 AM
2:15 PM
2:30 PM
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
Hail
1.75 in.
1.75 in.
1.75 in.
0.75 in.
0.75 in.
0.75 in.
0.75 in.
0.75 in.
0.75 in.
0.75 in.
1.75 in.
0.88 in.
0.75 in.
0.88 in.
1.00 in.
1.75 in.
0.75 in.
0.75 in.
0.88 in.
0.75 in.
1.75 in.
0.75 in.
1.00 in.
0.75 in.
0.88 in.
0.75 in.
Source: National Climatic Data Center, http://www4.ncdc.noaa.gov/cgi-win/wwcgi.dll?wwEvent~Storms and SHELDUS (Spatial Hazard
Events and Losses Database for the United States, http://go2.cla.sc.edu/hazard/db_registration.
3.2.7.3 History of Thunderstorms in Carteret County
The following information lists the thunderstorms in Carteret County back to March,
1965.
Table A-22: Thunderstorm/High Wind Data for Carteret County 1965 – 2004
(Including Bogue, Cape Carteret, Cedar Point, Newport and Peletier)
Location
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Date*
3/17/1965
4/9/1979
8/7/1979
7/11/1981
4/18/1983
4/18/1983
4/23/1983
7/22/1983
7/22/1983
7/24/1983
4/30/1984
5/3/1984
3/14/1986
7/15/1986
Time
2022
1330
1240
1100
1505
1530
2115
130
135
1700
1100
30
1245
1700
Magnitude
(in kts.)
58 kts.
0 kts.
52 kts.
0 kts.
52 kts.
65 kts.
50 kts.
61 kts.
69 kts.
60 kts.
0 kts.
50 kts.
0 kts.
0 kts.
39
Location
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Bogue
Cape Carteret
Cape Carteret
Cape Carteret
Cape Carteret
Cape Carteret
Cape Carteret
Cedar Point
Cedar Point
Newport
Newport
Newport
Newport
Newport
Newport
Newport
Newport
Newport
Date*
6/9/1988
6/26/1988
7/1/1990
5/29/1996
2/15/1997
3/31/1997
5/23/1998
6/13/1998
6/13/1998
6/30/1998
9/4/1998
12/16/1998
11/2/1999
12/16/2000
3/13/2001
3/20/2001
4/1/2001
7/5/2001
1/6/2002
2/4/2002
7/20/2002
10/15/2002
11/12/2002
12/24/2002
3/11/2003
5/23/2003
12/10/2003
3/7/2004
10/28/1995
11/11/1995
6/3/1997
6/13/1998
11/2/1999
4/17/2001
8/28/2001
11/2/1999
11/12/2002
10/28/1995
11/11/1995
6/25/1996
7/30/1996
2/15/1997
5/23/1998
6/23/1998
3/3/1999
9/17/2004
Time
1838
2010
1838
10:45 PM
4:55 PM
3:20 PM
1:04 PM
8:05 PM
8:15 PM
10:00 PM
2:00 AM
2:00 AM
12:17 PM
8:00 AM
1:30 AM
7:00 PM
3:30 PM
5:20 PM
2:00 PM
8:00 PM
5:46 PM
7:00 PM
12:23 PM
5:30 PM
1:05 PM
6:13 PM
11:15 PM
9:30 PM
155
2052
3:00 PM
7:38 PM
12:19 PM
2:35 PM
3:35 PM
12:17 PM
12:23 PM
155
2115
2:15 PM
5:30 PM
1:30 AM
12:37 PM
8:50 PM
4:48 PM
8:30 PM
Magnitude
(in kts.)
0 kts.
0 kts.
0 kts.
0 kts.
0 kts.
56 kts.
59 kts.
61 kts.
51 kts.
67 kts.
45 kts.
84 kts.
50 kts.
62 kts.
55 kts.
52 kts.
61 kts.
51 kts.
62 kts.
53 kts.
52 kts.
50 kts.
52 kts.
50 kts.
57 kts.
54 kts.
64 kts.
60 kts.
N/A
N/A
50 kts.
0 kts.
52 kts.
55 kts.
52 kts.
50 kts.
52 kts.
N/A
N/A
0 kts.
0 kts.
51 kts.
50 kts.
50 kts.
50 kts.
50 kts.
Source: National Climatic Data Center, http://www4.ncdc.noaa.gov/cgi-win/wwcgi.dll?wwEvent~Storms and SHELDUS (Spatial Hazard
Events and Losses Database for the United States, http://go2.cla.sc.edu/hazard/db_registration.
* All Storms occurring before 1993 were not recorded
40
3.2.7.4 Hazard Probability
Severe Storms are common throughout North Carolina. Deaths and injuries related to
thunderstorms peak in July and August. As can be seen from the extensive list of
thunderstorms above, Carteret County has a “High” probability of experiencing this type
of storm. With severe storms having been rated a 7 for Carteret County, this hazard will
be addressed in the plan
The southeast, being exposed to two bodies of water and being a large region,
experiences thunderstorms year round. It has the most lightning strikes in the US,
especially in Florida.
© National Geographic Society, from Dr. Richard Orville
Lightning Related Injuries in North Carolina – 1996
41
3.2.7.5 Tornado Description
Tornadoes are produced during severe thunderstorms, which are created near the junction
between warm, moist air and cold, dry air. Tornadoes derive their energy from the heat
contained in warm, moist air masses. Tornadoes do not form during every thunderstorm.
They occur when the moist, warm air is trapped beneath a stable layer of cold dry air by
an intervening layer of warm dry air. This is called an inversion. If this is disturbed, the
moist air will push through the stable air that is holding it down. This warm air will then
condense as the latent heat it holds is released. This air will then spiral upwards. With
the help of different types of winds, this spiral gains speed, producing a tornado.
A tornado path is generally less then .6 miles wide. The length of the path ranges from a
few hundred meters to dozens of kilometers. A tornado will rarely last longer then 30
minutes. The combinations of conditions that cause tornadoes are common across the
southern U.S. in early spring, especially in April and May. Tornadoes have been
recorded as lifting and moving objects weighing more then 300 tons up to 30 feet. They
can also lift homes off of their foundations and move them 300 feet. They collect an
incredible amount of debris, which they can whirl out of their winds at high velocities.
Tornadoes are usually accompanied by heavy rain.
Tornadoes can cause large amounts of property damage, injury, and death. . Although
more twisters hit Tornado Alley -- the states that run from Texas up through Oklahoma,
Kansas and into Nebraska -- more people are killed by the tornadoes that land in the
Southeast. The reasons given for the disparity include the different housing, geography
and population density and the greater tendency of tornadoes in the Southeast to strike at
night. Between 1950 and 1997, the Tornado Alley states of Texas, Oklahoma, Kansas,
Nebraska and Missouri had 13,808 tornadoes, according to data compiled by the National
Storm Prediction Center. In those storms, 1,132 people died. In Alabama, Arkansas,
Louisiana, Mississippi, Georgia, Florida, Tennessee, North Carolina and South Carolina,
there were 9,178 tornadoes and 1,648 deaths.
The National Weather Service issues a tornado watch for a specific location when the
conditions are ripe for tornadoes, and they are expected within a few hours. A tornado
warning is issued when a tornado has actually been sighted or indicated by weather radar.
Fujita Tornado Scale
Category
Maximum
Wind Speeds
F0
40 – 72mph
Equivalent
Saffir-Simpson
Scale
NA
F1
73 – 112 mph
Cat 1/2/3
Typical Effects
Gale Tornado. Light Damage: Some
damage to chimneys; breaks twigs and
branches off trees; pushes over shallowrooted trees; damages signboards; some
windows broken; hurricane wind speed
begins at 73mph.
Moderate Tornado. Moderate damage;
Peels surfaces off roofs; mobile homes
pushed off foundations or overturned;
outbuildings demolished; moving autos
pushed off the roads; trees snapped or
broken.
42
F2
113 – 157 mph
Cat 3/4/5
F3
158 – 206 mph
Cat 5
F4
207 – 260 mph
Cat 5
F5
261 – 318 mph
NA
F6 – F12
Greater then
319 mph.
NA
Significant Tornado. Considerable
damage: Roofs torn off frame houses;
mobile homes demolished; frame houses
with weak foundations lifted and moved;
boxcars pushed over, large trees snapped
or uprooted; light-object missiles
generated.
Severe Tornado. Severe damage: Roofs
and some walls torn off well-constructed
houses; trains overturned; most trees in
forests uprooted; heavy cars lifted off the
ground and thrown; weak pavement blown
off roads.
Devastating Tornado. Devastating
damage: Well constructed homes leveled;
structures with weak foundations blown
off some distance; cars thrown and
disintegrated; large missiles generated;
trees in forest uprooted and carried some
distance away.
Incredible Tornado. Incredible damage:
strong frame houses lifted off foundations
and carried considerable distance to
disintegrate; automobile-sized missiles fly
through the air in excess of 200 ft; trees
debarked; incredible phenomena will
occur.
The maximum wind speeds of tornadoes
are not expected to reach the F6 wind
speeds.
There are three different smaller forms of tornadoes; dust devils, waterspouts, and land
spouts. Dust devils are small powerful tornadoes that are commonly seen in the
American Southwest. Waterspouts are funnel clouds similar to tornadoes that occur over
water. High surface temperatures and humidities are necessary for their formation. They
are similar to tornadoes in that they are part of a cloud system. The water in the
waterspout is from the condensation of water vapor in the air that is being pulled into the
updraft within the cloud. Waterspouts can occur in good weather with only small clouds
present. They are usually weak and rarely cause damage.
Landspouts are similar to waterspouts in that they are not developed in fierce
thunderstorms. They form from cumulus congestus clouds over water. The funnel cloud
is usually weak and does not cause much damage.
Another tornado-like event is a Funnel Cloud. Funnel clouds are incipient tornadoes that
don't reach the ground.
3.2.7.6 History of Tornadoes in Carteret County
Carteret County experienced 33 tornadoes between 1963 and 2004. There was one in
each in the following years: 1961, 1963, 1964, 1967, 1972, 1976, 1977, 1991, 1996, and
1997. There were four tornadoes in 1974 and 2004. There were two tornadoes each in
1987, 1989, 1990, 1993, 2000, 2001, and 2003. During these 33 tornadoes, there were no
fatalities, 8 injuries and some incidents of property damage.
The list below defines the tornadoes that occurred from 1993 to 1999 in Carteret County.
43
Table A-26: Tornado Data for Carteret County – 1963 – 2003
(Including the Towns of Bogue, Cape Carteret, Cedar Point, Newport and Peletier)
Location
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Carteret County
Newport
Newport
Cape Carteret
Cape Carteret
Cape Carteret
Date
Time
Magnitude
5/17/1963
9/13/1964
12/3/1967
9/30/1972
5/26/1974
5/26/1974
5/26/1974
5/27/1974
7/25/1976
6/9/1977
9/13/1987
11/10/1987
3/20/1989
9/23/1989
9/15/1990
10/23/1990
6/20/1991
6/2/1998
7/31/1998
4/15/1999
9/15/1999
9/18/2000
4/17/2001
8/14/2003
6/7/2004
7/17/2004
8/13/2004
8/15/2004
7/12/1996
7/2/2003
9/3/1998
4/15/2000
4/1/2001
2225
600
815
1600
2310
2330
2332
1
1710
1030
830
1315
615
930
445
723
1845
4:15 PM
2:45 PM
10:05 PM
4:55 PM
3:37 PM
3:16 PM
11:01 AM
5:25 PM
4:25 PM
4:53 AM
1:23 PM
4:20 PM
9:55 AM
9:30 PM
11:45 AM
3:30 PM
F1
F1
F2
F0
F1
F1
F1
F2
F1
F1
F1
F0
F2
F0
F2
F1
F0
F0
F0
F1
F1
F0
F0
F0
F0
F0
F1
F0
F0
F0
F0
F0
F0
Total
Property
Damages
25K
25K
250K
0K
25K
3K
25K
25K
3K
250K
250K
250K
250K
25K
250K
25K
0K
1K
0K
500K
0K
0K
0K
0K
0K
75K
284K
0K
0K
0K
50K
20K
0K
$2.61M
Source: National Climatic Data Center.
3.2.7.7 Hazard Probability
Of all tornadoes reported in North Carolina between 1953 and 1990, 71% have been
classified as weak, 28% as strong, and about 1% as violent. Weak tornadoes have caused
3% of North Carolina tornado deaths. Strong tornadoes were responsible for 49% of
tornado deaths. Violent tornadoes caused 48% of North Carolina deaths.
Compared with other states, North Carolina ranks number 22 for frequency of tornadoes,
18 for number of deaths, 17 for injuries, and 21 for costs of damages. When we compare
these statistics to other states by the frequency per square mile, North Carolina ranks
44
number 24 for the frequency of tornadoes, number 19 for fatalities, number 16 for
injuries per area, and number 20 for costs per area.
Carteret County is considered to have a ‘High’ risk for a tornado occurrence. This was
determined by looking at a combination of susceptible areas and frequency of tornadoes
between 1953 and 1995. Climate divisions 3 – 8 (Carteret County is Climate Division 7)
were assigned a ‘Moderate’ likelihood, while climate divisions 1 and 2 were assigned a
‘Low’ likelihood. Then, all counties that experienced a frequency of tornado activity at
or about the 75th percentile of SERCC data (number of tornadoes > 6) were upgraded
from ‘Moderate’ to ‘High’ or ‘Low’ to ‘Moderate’. With tornadoes having been rated a 7
for Carteret County, this hazard will be addressed in the plan
3.2.8 Storm Surges
3.2.8.1 Description
Storm surges are caused by the wind and pressure forces ‘pushing’ the water into the
continental shelf and onto the coastline. The storm surge pushes the tide to rise many
feet above its normal level. The height of these surges can reach over 20 feet. A surge,
aided by the hammering of the waves, can act like a bulldozer, destroying everything in
its path. They also are responsible for coastal flooding and erosion. The storms that
generate the large waves of coastal surges can develop year round, but they typically
occur from late fall to early spring. Hurricanes and other tropical cyclones also generate
storm surges.
Factors Controlling Storm Surges:
•
•
•
Concave shoreline configurations or narrow bays create resonance within the
area due to winds forcing in water, elevating the surface of the water higher.
Low barometric pressures cause the water surface to rise, thus increase the
height of the storm surge.
Storms that arrive during peak astronomical tides have higher surge heights
and more flooding.
45
•
Storms with higher wind speeds drive greater amounts of water across the
shallow continental shelf. This increases the volume and elevation of water
pushed up against the coast.
Storm surges cause flooding by dune overwash, tidal elevation rise in inland bays and
harbors, and backwater flooding through coastal river mouths. Storm surge can result in
street, business, and residential flooding. The waves accompanying a storm event can
strike with enough force to destroy wall systems and undermine foundations, causing
collapse. Erosion of a dune system by waves and overwash can expose buildings to
destructive flooding, foundation scour, and other damage.
3.2.8.2 History of Storm Surge in Carteret County
Carteret County experiences storm surge in the event of a hurricane or severe storm.
Please see the storm surge maps in the Vulnerability section for more detail.
3.2.8.3 Hazard Probability
A common way to describe the hazard probability of a storm surge return period has been
the 1-percent chance of being equaled or exceeded in any given year, also known as the
100 year flood.
Carteret County has an expected storm surge elevation with a 10-year recurrence interval
of 1.5 to 2 meters. Dense development on Carteret County’s shorelines increases the
number of people and structures at risk.
Although storm surges typically occur during tropical events, several notable non-tropical
storm surge events have occurred since 1960. For instance, the Ash Wednesday storm of
1962 affected over 620 miles of shoreline over 4 high tides. This caused $300 million in
damages. The Halloween Nor’easter of 1991 also caused severe flooding and coastal
erosion along the entire East Coast.
Most of Carteret County has a chance of being impacted by a storm surge, whether
through high velocity waves, or flooding. This can be seen on the Hurricane Storm Surge
Inundation Maps (Slow and Fast Models) that can be seen under the Vulnerability section
of this report. With storm surge having been rated a 9 for Carteret County, this hazard
will be addressed in the plan
3.2.9 Coastal Erosion
3.2.9.1 Description
At its most basic, erosion represents the movement of sand and earth from one place to
another as caused by wind and water. Rain, wind, storms, the tides and local water
currents all affect the rate of erosion. Coastal erosion can impair free access to beaches
and threaten the living conditions and livelihood of residents. Natural habitats such as
wetlands and lagoon waters are threatened by encroachment of the sea.
46
Coastal erosion is defined as a change in the position or horizontal displacement of a
shoreline over time. This typically is related to hazardous events such as hurricanes,
flooding, storm surge, etc. Humans can also influence the erosion through dredging,
shoreline hardening, and boat wakes. Coastal erosion is characterized by either a gradual
wearing away of land, beach, shorelines, dunes, or development of steep scarps along the
beach face.
Coastal erosion can occur from a short time episode such as storm waves, storm surge,
overwash, inland flooding, barrier island breach, rip currents, and undertow. It can also
occur from multi-year impacts and long term climatic changes. This includes sea level
rise, sediment loss, subsidence, littoral transport losses, changes in sand-grain size
distribution, natural inlets, inland flooding, and rip currents. Long term affects can also
occur from human activity such as shore protection measures, aquifer depletion,
damming of rivers, sand mining, and destabilization of dunes.
Although coastal erosion is usually not associated with death or injuries, it can cause
property damage. If this occurs, it can take months to years to naturally regenerate the
coast.
Coastal erosion has been included in more then 25 federal disaster declarations in the last
20 years.
3.2.9.2 History of Coastal Erosion in Carteret County
Long term average annual shoreline change rates (through 1992) maps have been
obtained from the North Carolina Division of Coastal Management (NCDCM). NCDCM
is obtaining new aerial photography this year, thus updated maps should be available in
the near future.
3.2.9.3 Hazard Probability
Coastal erosion is measured as the rate of change in the position or horizontal
displacement of a shoreline over a specific period, measured in feet or meters per year.
With storm surge having been rated a 6 for Carteret County, this hazard will be addressed
in the plan
Oak Ridge National Laboratory identified the U.S. East and Gulf coasts in the U.S.
Southeast as one of the most vulnerable regions. The Southeast, which extends from the
Virginia and South Carolina border to the Texas and Mexican border, contains 85% of
the U.S. coastal wetlands and 50% of the barrier islands. Of the region’s 34,000 km of
coastline, more than 40% has been identified as being at high risk to episodic and
permanent increases in sea level.
Low coastal relief, subsidence, extensive shoreline retreat, and high wave/tide energies
characterize a vulnerable coastline
Please refer to the maps in the last section obtained from the North Carolina Division of
Coastal Management. These show the average annual coastline erosion or accretion
47
through 1992. NCDCM is obtaining new aerial photography this year, thus updated
maps should be available in the near future.
3.3 Technological Hazards
3.3.1
Hazardous Materials
3.3.1.1 Description
Any area that manufactures hazardous materials, or contains transportation routes (roads,
rail) that transports hazardous materials is at risk for a hazardous material event.
Approximately 6,774 HAZMAT (hazardous materials) events occur each year. 991 are
railway events. Trucks are responsible for most of these events. The average distance
for trip lengths for gasoline transport is 28 miles 260 miles is the average length for
chemical trucks.
Even though trucks account for the most accidents, it is railway
transport that is of the most concern. Collisions and derailments can cause very large
spills as it is rare that a single car will go over. Usually many go over at once.
An average of 280 HAZMAT spills occur at fixed sites each year. Natural disasters, such
as floods and earthquakes can cause HAZMAT releases or disturb old HAZMAT release
sites (Superfund sites). These same disasters can make it difficult to contain these events
once they occur. Also, these same natural disasters can limit access to the spill,
waterlines for fire suppression may be broken, and response personnel and resources may
be limited. Flooding and high winds can quickly spread the contaminant, threatening
agriculture, water supply and air.
HAZMAT releases pose short and long term threats to people, wildlife, vegetation, and
the environment. HAZMAT materials can be absorbed through inhalation, ingestion, or
direct contact with the skin.
Years ago, many wastes were dumped on the ground, in rivers, or left out in the open. As
a result, thousands of uncontrolled or abandoned waste sites were created. Some
common hazardous waste sites include abandoned warehouses, manufacturing facilities,
processing plants and landfills. In response to growing concern over health and
environmental risks posed by hazardous waste sites, Congress established the Superfund
Program in 1980 to clean up these sites. The Superfund Program is administered by the
U.S. Environmental Protection Agency (EPA) in cooperation with individual sites
throughout the United States.
The Comprehensive Environmental Response, Compensation, and Liability Information
System (CERCLIS) is the official repository for site and non-site specific Superfund data
in support of the Comprehensive Environmental Response, Compensation, and Liability
Act (CERCLA). It contains information on hazardous waste site assessment and
remediation from 1983 to the present.
48
North Carolina maintains its own list of hazardous waste sites. The North Carolina
Inactive Hazardous Sites Response Act of 1987 (N.C.G.S. 130A-310 et seq) was enacted
to establish a program to manage uncontrolled and unregulated hazardous wastes sites.
This Act is administered by the Inactive Hazardous Sites Branch (IHSB).
The IHSB can address any site where hazardous substance and/or hazardous waste
contamination exists with the following exceptions: (1) RCRA permitted or interim status
facilities; and (2) any site where the Environmental Management Commission, the
Commissioner of Agriculture or the Pesticide Board has assumed jurisdiction.
IHSB has the authority to do the following:
•
•
•
•
•
•
Provide leadership and approval in voluntary remedial actions.
Enforce assessment and remediation orders at priority sites.
Reduce public health threats.
Administer the Registered Environmental Consultant (REC) Program.
Record notices of contamination on property deeds.
Compile, maintain and prioritize sites that require investigation.
A hazardous waste site may be on the NC Inactive Hazardous Site list but not on
CERCLIS.
Additional Hazardous Waste data is contained in the Resources Conservation and
Recovery Information System (RCRIS) in support of the Resource Conservation and
Recovery Act (RCRA). RCRA requires that generators, transporters, treaters, storers,
and disposers of hazardous waste provide information concerning their activities to state
environmental agencies. These agencies then provide the information to regional and
national U.S. Environmental Protection Agency (EPA) offices.
RCRIS is used by the EPA to support its implementation of RCRA, as amended by the
Hazardous and Solid Waste Amendments of 1984 (HSWA). The system is primarily
used to track handler permit or closure status, compliant with Federal and State
regulations, and cleanup activities. Other uses of the data include program management,
regulation development, waste handler inventory, corrective action tracking, regulation
enforcement, facility management planning, and environmental program progress
assessment.
3.3.1.2 History of Hazardous Materials in Carteret County
TRANSPORTATION:
There were no Carteret County HAZMAT incidents, due to transportation, reported to the
U.S. Department of Transportation between 1990 and 1999.
49
CERCLIS AND NC HAZARDOUS SITES INVENTORY:
Known sites for non-transportation related contaminants, current and past, in Carteret
County are listed in the North Carolina Inactive Hazardous Site Inventory and CERCLIS
lists.
•
ANT USCG Fort Macon Station, HWY 58, Atlantic Beach, CERCLIS: No RCRA files exist
for this site. The CERCLA files do not indicate any hazardous substance releases at this site. This
site was removed from CERCLA in 1995.
•
Guthrie Ernest Prop, 260 Utopia Drive, Newport, CERCLIS: This property is a 6 acre parcel
of land on which Ernest Guthrie and his family live. The property has never been used as a
disposal site for hazardous material. Mr. Guthrie began a waste hauling business in the early
1970s. The business hauled dirt, stumps, and other rubbish to the Carteret County Landfill. The
Ernest Guthrie Property was placed on the CERCLIIS list after the EPA reviewed Corning
Fiberglass’ CERCLA notification. Corning’s notification indicated that Mr. Guthrie had hauled
waste from Trumbull Asphalt, a company subsequently purchased by Corning. Mr. Guthrie
confirmed that he had hauled waste from Trumbull but it was non-hazardous. There is no
evidence in any of the files of contamination at this site. Therefore, the site is recommended for
No Further Action classification for the NC Inactive Hazardous Sites Branch. This site was
removed from CERCLIS on August 22, 1995.
•
National Marine Fisheries Service, Arendell St, Beaufort, CERCLIS, NC Inactive
Hazardous Waste Sites: This site has an RCRA status as an exempt small quantity generator.
There is no evidence of hazardous substance disposal or spills. Based on this information,, it has
been recommended that this site be transferred from the NC Inactive Hazardous Sites ‘Pending’
category to the ‘No Further Action’ category. This site was removed from CERCLIS on August
22, 1995.
•
USA Reserve XVIII Airborne Corps, Morehead City, CERCLIS and NC Inactive
Hazardous Waste Sites: This site does military training in heavy boat use. The hazardous
substances generated at this site (and disposed of off site) include waste oil, antifreeze, solvents,
and battery acid. As of 1993, EPA has determined that no further remedial action is required at
this site under CERCLA.
•
USMC/Crash Crew Burn Pit, Morehead City, CERCLIS and NC Inactive Hazardous Waste
Sites: There is a bermed pit in the area and an unbermed area where miscellaneous scrap metal
waste has been dumped on the land. No records were kept detailing quantity or type of wastes
disposed of at this site, or records indicating the time this site was in use. There was visual
evidence that POLs from the burn pit overflowed.
RESOURCES CONSERVATION AND RECOVERY INFORMATION SYSTEM
(RCRIS ) INVENTORY:
•
•
•
•
•
•
•
•
•
•
A1 Sign Shop Inc, 4960 Country Club Rd, Morehead City, NC 28557
Army Reserve XVIII Airborne Corps, 405 Fisher St, Morehead City, NC 28557
B&W Classic Cleaners, 1412 Live Oak St, Beaufort, NC 28516
Bally Refrigerated Boxes, Inc, 135 Little Nine Rd, Morehead City, NC 28557
Carteret Body Shop, 1307 Arendell St, Morehead City, NC 28557
Carteret General Hospital, 3500 Arendell ST, Morehead City, NC 28557
Coastal Dry Cleaners, Morehead Plaza, Morehead City, 28557
Conner Industries Truck Shop, 38 Chatham St, Newport, NC 28570
CVS Pharmacy #7024, 8700 Emerald Dr, Emerald Isle, NC 28594
Duke University Marine Laboratory, Duke Marine Lab Pond, Beaufort, NC 285169
50
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
Hankison International, 199 Utopia Dr, Newport, NC 28570
Inchcape Shipping, NC State Docks, Morehead City, NC 28557
JBM Manufacturing, 127 Hestron Dr, Morehead City, NC 28557
Jerry’s Body Shop, HWY 70 W, New Port, NC 28570
Merritt Ford Inc, 5557 Hwy 70, Newport NC 28570
Mikes Paint & Body Shop, HWY 70 West, Morehead City, NC 28557
NC Ports Authority, 113 Arendell St, Morehead City, NC 28557
Owens-Corning Fiberglass, 105 Arendell St, Morehead City, NC 28557
Parker Marine Enterprises Inc, 2570 Hwy 101, Beaufort, NC 28516
Parker Pontiac/Olds/Buick GMC Inc, Hwy 70 W, Morehead City, NC 28557
Sunshine Laundry & Cleaners, 1612 Bridges St, Morehead City, NC 28557
Swan Point Marina, 123 Page St, Sneads Ferry, NC 28460
US Coast Guard Group Fort Macon, End of Fort Macon Rd, Atlantic Beach, NC 28512
US Marine Corps Alf Bogue, NC Hwy 24, Cape Carteret, NC 28584
US Mcalf Bogue, NC Hwy 24, Carteret County, NC 28533
USCG Station Swansboro, 11101 Station St, Emerald Isle, NC 28594
3.3.1.3 Hazard Probability
People and property that are close to transportation routes such as highways and railways
are at risk from HAZMAT events that occur during transport. Railways in Carteret
County include Atlantic and East Carolina Railway, Camp Lejeune Railroad, and
Beaufort and Morehead Railway. Large highways include 70, 58, 24, and 101. New
hazardous waste sites are continually being found throughout North Carolina. Sites that
exist also have the possibility of spreading their contaminants during natural disasters
such as flooding and hurricanes.
Table A-31: Natural Hazard Summary Assessment for Carteret County,
(Including, the Towns of Bogue, Cape Carteret, Cedar Point, Newport and Peletier)
Natural Hazarda
Hurricane
Flood
Tornado
Nor’easter
Thunderstormc
Severe Winter Storm
Wildfire
Earthquake
Landslide
Vulnerability of Carteret County b
High
High
High
High
Moderate
Low
Moderate
Low
Low
Source: Local Hazard Mitigation Planning Manual, NCDEM, 1998, p. 84-5.
a
The “Local Hazard Mitigation Planning Manual” does not rate the following hazards for Carteret County - coastal erosion, levee
failures, tsunamis, and volcanoes.
b
The North Carolina Division of Emergency Management Methodology: Each of the one hundred counties in North Carolina was
categorized into one of three levels of natural hazard likelihood – “Low”, “Moderate”, or “High” for eight natural hazards. Some
assignments were made, in part, using the Climate Division (formulated by the National Climatic Data Center - Guttman and
Quayle, 1995) to which each county was assigned. The Climate Division number for Carteret County is 8. For additional
information on how ratings were developed, see Local Hazard Mitigation Planning Manual, North Carolina Division of Emergency
Management, November 1998.
c
Thunderstorms were not rated in the Local Hazard Mitigation Planning Manual. For the purposes of this report, thunderstorms were
rated moderate.
The manual also estimated the potential impact of various natural hazards for Carteret
County as shown in Table A-30. This information from the Local Hazard Mitigation
Planning Manual was considered as part of the analysis process.
51
Table A-32: Natural Hazards–Potential Impact Data for Carteret County,
including, the Towns of Bogue, Cape Carteret, Cedar Point, Newport and Peletier.
Natural Hazard
Earthquake Vulnerability
Landslide Vulnerability
Frequency of All Hurricanes, 1900-96
Frequency of Minor Hurricanes, 1900-96
Frequency of Major Hurricanes, 1900-96
Nor’easter Vulnerability
Frequency of Tornadoes, 1953-1995
Extreme 1-day snowfall, 1987
Cold Air Damming Vulnerability
Wildfires, 1950-1993
Number of Acres Burned
Range
Low =1 to High = 6
Low =1 to High = 6
Saffir-Simpson Class 1-5
Saffir-Simpson Class 1-2
Saffir-Simpson Class 3-5
1 = some direct vulnerability
Number of tornadoes
In inches
1 = some vulnerability
Low = 1, Mod. =2, High = 3
Low = 1, Mod. =2, High = 3
Carteret
County
1
1
16
14
2
1
16
17
0
1
2
Source: Local Hazard Mitigation Planning Manual, NCDEM, 1998, pp. 88-91.
C. Final Hazard Analysis – Carteret County Composite Hazard Index
Certain parts of the County, such as floodplains and steep slopes, are more prone to
hazards. In addition, certain types of hazards are likely to produce only localized effects
while others have wide spread effects. Some natural hazards have extraordinary impacts
but occur infrequently. Other hazards occur annually or several times a decade, but cause
little damage.
The total potential impact of each type of hazard can be projected using a combination of
likely strength of the event, the size of the area(s) affected, and the density of human
activity within the likely path of the hazard. Table A-33 gives each natural hazard a
“hazard index” rating based on the combination of three factors – likelihood of
occurrence, size of potential area affected, and the potential impact of the event. An
explanation of the terms for likelihood of occurrence and level of potential impact can be
found in Tables A-1 through A-3 at the front of the section. (Note: Coastal erosion,
tsunamis and volcanoes are not included in Table A-33 as the County has determined that
the community is not at risk for these natural hazards.)
52
Table A-33: Composite Hazard Index for Carteret County,
including, the Towns of Bogue, Cape Carteret, Cedar Point, Newport and Peletier.
Hazard Type
Coastal Erosion
Dam Failures
Droughts and Heat Waves
Earthquakes
Floods
Hurricanes and Coastal Storms
Landslides and Sinkholes
Severe Storms and Tornadoes
Wildfires
Winter Storms and Freezes
Likelihood of
Occurrence
Potential
Area Affected
Potential
Impacts
(3)
Likely
(1)
Unlikely
(2)
Possible
(1)
Unlikely
(3)
Likely
(3)
Likely
(1)
Unlikely
(4)
Highly Likely
(2)
Possible
(2)
Possible
(1)
Small
(1)
Small
(3)
Large
(3)
Large
(2)
Medium
(3)
Large
(1)
Small
(1)
Small
(1)
Small
(2)
Medium
(2)
Limited
(1)
Negligible
(2)
Limited
(1)
Negligible
(2)
Limited
(3)
Critical
(1)
Negligible
(2)
Limited
(2)
Limited
(1)
Negligible
Hazard Index
(combined
ranking)
(6)
Moderate
(3)
Low
(7)
Moderate
(5)
Low
(7)
Moderate
(9)
High
(3)
Low
(7)
Moderate
(5)
Low
(5)
Low
Appendix Footnotes
1-1
“Preventing Disasters through Hazard Mitigation”, Ana K. Schwab, Popular Government, Spring 2000, p.4.
1-2
State Climate Office of North Carolina, North Carolina State University.
1-3
North Carolina Natural Hazards Mitigation (Section 409) Plan, North Carolina Department of Environment and Natural Resources,
1998, p. 14.
1-4
Local Hazard Mitigation Planning Manual, NC Division of Emergency Management, 1998, p. 77.
53
IV. Vulnerability Assessment
4.1 Present Vulnerability to Hazards
The following outlines the vulnerability to natural disasters and hazards within Carteret
County.
Tornadoes in Carteret County:
Compared with other states, North Carolina ranks number 22 for frequency of tornadoes,
20 for number of deaths, 17 for injuries, and 21 for cost of damages. When we compare
these statistics to other states by the frequency per square mile, North Carolina ranks
number 36 for the frequency of tornadoes, number 19 for fatalities, number 16 for
injuries per area, and number 20 for costs per area. This is based on data from 1950 –
1995.
The combinations of conditions that cause tornadoes are common across the southern
USA in early spring, especially in April and May.
Flood Zone Classification in Carteret County, North Carolina:
The flood zone definitions referenced on the flood maps are as follows:
AE – This identifies an area inundated by 100 year flooding, for which base flood
elevations (BFEs) have been determined.
A – This identifies an area inundated by 100 year flooding, for which no BFEs
have been determined.
X – This identifies an area that is determined to be outside the 100 and 500 year
floodplains.
X500 – This identifies an area inundated by 500 year flooding; an area inundated
by 100 year flooding with average depths of less then 1 foot or with drainage
areas less the 1 square mile; or an area protected by levees from 100 year
flooding.
VE – This identifies an area inundated by 100 year flooding with velocity hazard
(wave action); base flood elevations have been determined.
UNDES – This identifies a body of water, such as a pond, lake, ocean, etc. located
within a community’s jurisdictional limits; that has no defined flood hazard.
Carteret County has a large area located in special flood hazard areas. The total acres in
each flood zone are as follows:
A – 30,246
AE – 374,371
UNDES – 138,415
VE – 52,180
54
X – 103,712
X500 – 16,286
The percentages of each flood zone in Carteret County are as follows:
A – 4%
AE – 53%
UNDES – 19%
VE – 7%
X – 15%
X500 – 2%
Tax Parcels (Containing Mobile Home and RV Parks) That are Within a Flood Zone:
Tax parcel information was used to determine the number of parcels that contain mobile
home or RV parks that are within a flood zone. There are 172 of these tax parcels in the
100 year flood zone (A and AE), 18 parcels within a 100 year flood zone with wave
action (VE), and 107 of these parcels within a 500 year flood zone (X500).
Significant differences exist between homes built under previous HUD standards and
new standards (revised in July, 1994). Older mobile homes will only withstand winds of
about 75mph. HUD requires that newly manufactured homes be able to withstand winds
of 100mph in inland counties, more for homes located near the coast.
The weight of mobile homes has increased from about 16,000 pounds to 40,000 pounds.
Anchoring requirements have increased from 5 - 6 anchors per side to 11 – 14 anchors
per side. Each anchor consists of a weighted disc that’s buried in the ground with a steel
cable attached to the house.
However, since these HUD standards have only been in place since July, 1993, this
leaves a large portion of mobile homes in Carteret County vulnerable to damage from
hurricanes, tornadoes, and other storms.
Designated Shelters in Carteret County:
It is important to realize that not all shelters are functional during a natural disaster, due
to lack of staffing and logistics. There are approximately 752 people residing within
Carteret County that do not live within 10 miles of shelter. This information was
determined by calculating the number of people in the 1990 census blocks that did not
fall within a ‘buffer’ circle. Since the census block boundaries do not fall evenly along
the buffer boundaries, this number should just be taken as a ‘general’ assessment. It is
also important to realize that not all shelters are functional during a natural disaster, due
to lack of staffing and logistics.
55
Hurricane Evacuation Routes in Carteret County:
The Evacuation routes are shown on the County map of fire risk and wildfire risk (see
appendix). These routes should be used in Carteret County in the event of a hurricane.
Evacuation routes have been designated to minimize problems caused by heavy traffic.
To ensure a successful evacuation, residents should leave as early as possible and use
routes specified for their area.
The Total Population Living Below Poverty Level (Per 1990 Census) Within a Flood
Zone:
The table below shows the population per census block group that is considered below
the poverty level. This information shows the poverty thresholds in 1990.
Following the Office of Management and Budget’s (OMB’s) Directive 14, the Census
Bureau uses a set of money income thresholds that vary by family size and composition
to detect who is poor. If a family’s income is less that that family’s threshold, then that
family, and every individual in it, is considered poor. The poverty thresholds do not vary
geographically, but they are updated annually for inflation with the Consumer Price
Index (CPI-U). The official poverty definition counts money income before taxes and
excludes capital gains and noncash benefits (such as public housing, Medicaid, and food
stamps).
Number of People Over the Age of 65 Within a Flood Zone in Carteret County (As Per
1990 Census Blocks):
The census data shows the number of people over the age of 65 living in a flood zone is
5048 senior citizens live in a 100 year flood zone (A and AE), 4102 senior citizens are in
a 500 year flood zone (X500), and 830 senior citizens are in an 100 year flood zone with
wave action (VE).
The number of senior citizens in the tables should be considered inflated. If a flood zone
even just slightly touches a census block, the entire block is considered compromised.
56
This was calculated this way because with the available data, it was impossible to tell
where the people reside within each census block.
The Total Population in the 1990 Census Blocks that are Wholly or Partially in the 100
and 500 Year Flood Zones:
The total number of people in Carteret County, as per the 1990 census that live within
flood zones is as follows: 34,806 people in a 100 year flood zone (A and AE) and 27,669
people in the 500 year flood zone (X500). 5285 people are in a 100 year flood zone with
wave action (VE). The total population in the county was 52,556. The numbers for
acreage and people should be considered inflated. If a 100 year or 500 year flood zone
even just slightly touches a census block, the entire block (including its total people and
acreage) is considered within the flood zone. This was calculated this way because with
the available data, it is impossible to tell where the people reside within each block.
The Total Population (As Determined by 1990 Census Blocks) That is Under the Age
of 18 and Within a Flood Zone:
The 1990 census data indicates the number of people under 18 living in a flood zone is
7,770 children in a 100 year flood zone (A and AE), 5,950 children in a 500 year flood
zone (X500), and 902 children in a 100 year flood zone with wave action (VE). There
are a total of 11,807 children under the age of 18 residing in Carteret County (as per 1990
census).
The number of children in the figures above should be considered inflated. If a flood
zone even just slightly touches a census block, the entire block (including its total
children) is considered within the flood zone. This was calculated this way because with
the available data, it is impossible to tell where the children reside within each block.
Railroad Lines Within Flood Zones:
There are railroad lines in Carteret County that reside within a flood zone. This map
shows where these lines are and what type of flood they could be affected by.
Street Segments at Risk for Flooding in Carteret County, North Carolina:
Street segments in Carteret County have the potential to become flooded. Based on GIS
data 3240 street segments are in a 100 year flood zone (A and AE), 66 street segments are
in a 100 year flood zone with wave action, and 1646 street segments are in a 500 year
flood zone. Four street segments (bridges) are in a body of open water (UNDES). 4807
segments are outside the 100 and 500 year flood zone (X). Many street segments may be
found in two or more flood categories. For instance, one end of a street may be in a
X500 zone, and the other end may be in an AE zone. Therefore, the numbers of street
segments listed above seem to exceed the total number of street segments in the county
(7,763).
57
Developed, Not Developed, Undevelopable, and Publicly Owned Land in Carteret
County: A Breakdown of Acreage and Value for Each Category:
Tables and charts show these values numerically and graphically. The definitions of all
categories is as follows:
Developed: A parcel was considered ‘Developed’ if the following formula applied:
Total Building Value > $10,000 AND Acres < 15 AND Mobile Homes >= 1
Undevelopable: Certain land in Carteret County cannot be developed. This land might
be swampy, wetlands, etc. Undevelopable land was computed to be at less or equal to
$100 per acre.
Undeveloped: Land that has not been developed.
Publicly Owned: Land that is owned by the state, federal or county government.
Status
Developed
Not Developed
Undevelopable
Publicly Owned
# of Parcels
44,719
4,689
2,302
357
Acres
39,403.58
163,806.08
32,224.30
87,306.25
Total Tax Value
$5,840,666,072
$453,492,369
$1,014,060
$2,531,817,242
Percent of Acreage:
Tax Value:
Developed, Not Developed, Undevelopable, and Publicly Owned Land Within Flood
Zones:
The category definitions are as follows:
58
Developed: A parcel was considered ‘Developed’ if the following formula applied:
Total Building Value > $10,000 AND Acres < 15 AND Mobile Homes > 1
Undevelopable: Certain land in Carteret County cannot be developed. This land might
be swampy, wetlands, etc. Undevelopable land was computed to be at less or equal to
$100 per acre.
Undeveloped: Land that has not been developed.
Publicly Owned: Land that is owned by the state, federal or county government.
The number of parcels in each category that fall within a flood zone are as follows:
Parcels Partially or Wholly in a 100 Year Flood Zone (A and AE):
Status
# of Parcels
Acres
Developed
18,739
23,616.04
Not Developed
3,120
151,005.13
Undevelopable
1,271
31,249.10
Publicly Owned
277
83,364.20
Tax Value
$2,467,163,008
$340,310,858
$1,002,944
$1,824,828,999
Parcels Partially or Wholly in a 100 Year Flood Zone with Wave Action (VE)
Status
# of Parcels
Acres
Tax Value
Developed
2,425
1,830.73
$687,947,466
Not Developed
171
5,958.34
$37,974,960
Undevelopable
303
4,976.43
$205,073
Publicly Owned
56
6,968.75
$68,809,594
Parcels Partially or Wholly in a 500 Year Flood Zone (X500)
Status
# of Parcels
Acres
Developed
9,590
9,154.85
Not Developed
889
91,974.96
Undevelopable
470
9,653.48
Publicly Owned
77
25,004.61
Tax Value
$1,373,260,422
$209,950,742
$461,359
$812,258,361
Land Cover Within the 100 and 500 Year Flood Zones:
The following table shows the total land cover acreage and percentages within Carteret
County:
Description
Shrubland
Water Bodies
Acreage
38,115
389,381
Percentage
6%
58%
59
Upland Forest
Developed
Wetland Forest
Cultivated
159,303
7,893
12,804
64,290
24%
1%
2%
10%
Hurricane Storm Surge Inundation Areas (Slow Model) in Carteret County:
The National Hurricane Center, in cooperation with the North Carolina Center for
Geographic Information and Analysis, developed the GIS data set, Hurricane Storm
Surge Inundation Areas (1993), to reevaluate the extent of the areas affected by hurricane
inundation along the North Carolina coast. The data depicts the extent of storm surge
inundation areas based on SLOSH (Sea, Lake, and Overland Surges from Hurricanes)
models, for the North Carolina coast. This map shows the SLOW model (with forward
velocities of less than or equal to 15mph). Storm surge is the abnormal rise in water level
caused by wind and pressure forces of a hurricane or tropical storm. The SLOSH model
was developed using various combinations of hurricane strength (based on the SaffirSimpson scale), wind speed, and direction of movement. Rainfall produced by a
hurricane is not taken into account.
Hurricane Storm Surge Inundation Areas (Fast Model) in Carteret County:
The National Hurricane Center, in cooperation with the North Carolina Center for
Geographic Information and Analysis, developed the GIS data set, Hurricane Storm
Surge Inundation Areas 91993), to reevaluate the extent of the areas affected by hurricane
inundation along the North Carolina coast. The data depicts the extent of storm surge
inundation areas based on SLOSH (Sea, Lake, and Overland Surges from Hurricanes)
models, for the North Carolina coast. This map shows the SLOW model (with forward
velocities greater then 15mph). Storm surge is the abnormal rise in water level caused by
wind and pressure forces of a hurricane or tropical storm. The SLOSH model was
developed using various combinations of hurricane strength (based on the Saffir-Simpson
scale), wind speed, and direction of movement. Rainfall produced by a hurricane is not
taken into account.
Storm Surge Risk Within the City Limits and ETJ of Newport:
The National Hurricane Center, in cooperation with the North Carolina Center for
Geographic Information and Analysis, developed the GIS data set, Hurricane Storm
Surge Inundation Areas (1993) to reevaluate the extent of the areas affected by hurricane
inundation along the North Carolina Coast. The data depicts the extent of storm surge
inundation areas based on SLOSH (Sea, Lake, and Overland Surges from Hurricanes)
models, for the North Carolina coast. This is the data for the FAST (Those with forward
velocities greater then 15mph) and SLOW (Those with forward velocities less then or
equal to 15mph) models. Storm surge is the abnormal rise in water level caused by wind
and pressure forces of a hurricane or tropical storm. The SLOSH model was developed
60
using various combinations of hurricane strength (base on the Saffir-Simpson scale) wind
speed, and direction of movement. Rainfall produced by a hurricane is not taken into
account.
This information is as follows:
Parcels Wholly or Partially Affected by the Fast Model:
Type of Storm
# of Parcels
Category 1 and 2
221
Category 3
444
Category 4 and 5
1,634
Acres
6,880.67
9,024.64
16,150.69
Parcels Wholly or Partially Affected by the Slow Model
Type of Storm
# of Parcels
Category 1 and 2
363
Category 3
828
Category 4 and 5
1,173
Acres
7,845.54
13,042.95
14,039.84
Storm Surge Risk Within the City Limits of Bogue:
The National Hurricane Center, in cooperation with the North Carolina Center for
Geographic Information and Analysis, developed the GIS data set, Hurricane Storm
Surge Inundation Areas (1993) to reevaluate the extent of the areas affected by hurricane
inundation along the North Carolina Coast. The data depicts the extent of storm surge
inundation areas based on SLOSH (Sea, Lake, and Overland Surges from Hurricanes)
models, for the North Carolina coast. This is the data for the FAST (Those with forward
velocities greater then 15mph) and SLOW (Those with forward velocities less then or
equal to 15mph) models. Storm surge is the abnormal rise in water level caused by wind
and pressure forces of a hurricane or tropical storm. The SLOSH model was developed
using various combinations of hurricane strength (base on the Saffir-Simpson scale) wind
speed, and direction of movement. Rainfall produced by a hurricane is not taken into
account.
This information is as follows:
Parcels Wholly or Partially Affected by the Fast Model:
Type of Storm
# of Parcels
Category 1 and 2
111
Category 3
124
Category 4 and 5
177
Acres
1,152.91
1,184.07
1,285.71
Parcels Wholly or Partially Affected by the Slow Model
Type of Storm
# of Parcels
Category 1 and 2
60
Category 3
88
Acres
1,079.76
1,125.43
61
Category 4 and 5
166
1,267.15
Storm Surge Risk Within the City Limits of Cape Carteret:
The National Hurricane Center, in cooperation with the North Carolina Center for
Geographic Information and Analysis, developed the GIS data set, Hurricane Storm
Surge Inundation Areas (1993) to reevaluate the extent of the areas affected by hurricane
inundation along the North Carolina Coast. The data depicts the extent of storm surge
inundation areas based on SLOSH (Sea, Lake, and Overland Surges from Hurricanes)
models, for the North Carolina coast. This is the data for the FAST (Those with forward
velocities greater then 15mph) and SLOW (Those with forward velocities less then or
equal to 15mph) models. Storm surge is the abnormal rise in water level caused by wind
and pressure forces of a hurricane or tropical storm. The SLOSH model was developed
using various combinations of hurricane strength (base on the Saffir-Simpson scale) wind
speed, and direction of movement. Rainfall produced by a hurricane is not taken into
account.
This information is as follows:
Parcels Wholly or Partially Affected by the Fast Model:
Type of Storm
# of Parcels
Category 1 and 2
390
Category 3
516
Category 4 and 5
570
Acres
502.56
724.05
828.56
Parcels Wholly or Partially Affected by the Slow Model
Type of Storm
# of Parcels
Category 1 and 2
257
Category 3
336
Category 4 and 5
549
Acres
310.31
459.83
752.97
Storm Surge Risk Within the City Limits of Cedar Point:
The National Hurricane Center, in cooperation with the North Carolina Center for
Geographic Information and Analysis, developed the GIS data set, Hurricane Storm
Surge Inundation Areas (1993) to reevaluate the extent of the areas affected by hurricane
inundation along the North Carolina Coast. The data depicts the extent of storm surge
inundation areas based on SLOSH (Sea, Lake, and Overland Surges from Hurricanes)
models, for the North Carolina coast. This is the data for the FAST (Those with forward
velocities greater then 15mph) and SLOW (Those with forward velocities less then or
equal to 15mph) models. Storm surge is the abnormal rise in water level caused by wind
and pressure forces of a hurricane or tropical storm. The SLOSH model was developed
using various combinations of hurricane strength (base on the Saffir-Simpson scale) wind
speed, and direction of movement. Rainfall produced by a hurricane is not taken into
account.
62
This information is as follows:
Parcels Wholly or Partially Affected by the Fast Model:
Type of Storm
# of Parcels
Category 1 and 2
487
Category 3
363
Category 4 and 5
368
Acres
868.75
835.38
974.91
Parcels Wholly or Partially Affected by the Slow Model
Type of Storm
# of Parcels
Category 1 and 2
389
Category 3
306
Category 4 and 5
356
Acres
716.13
767.78
835.45
Storm Surge Risk Within the City Limits of Peletier:
The National Hurricane Center, in cooperation with the North Carolina Center for
Geographic Information and Analysis, developed the GIS data set, Hurricane Storm
Surge Inundation Areas (1993) to reevaluate the extent of the areas affected by hurricane
inundation along the North Carolina Coast. The data depicts the extent of storm surge
inundation areas based on SLOSH (Sea, Lake, and Overland Surges from Hurricanes)
models, for the North Carolina coast. This is the data for the FAST (Those with forward
velocities greater then 15mph) and SLOW (Those with forward velocities less then or
equal to 15mph) models. Storm surge is the abnormal rise in water level caused by wind
and pressure forces of a hurricane or tropical storm. The SLOSH model was developed
using various combinations of hurricane strength (base on the Saffir-Simpson scale) wind
speed, and direction of movement. Rainfall produced by a hurricane is not taken into
account.
This information is as follows:
Parcels Wholly or Partially Affected by the Fast Model:
Type of Storm
# of Parcels
Category 1 and 2
98
Category 3
95
Category 4 and 5
155
Acres
806.30
966.78
1,386.99
Parcels Wholly or Partially Affected by the Slow Model
Type of Storm
# of Parcels
Category 1 and 2
82
Category 3
85
Category 4 and 5
99
Acres
692.76
794.84
1,173.76
63
100 and 500 Year Flood Risk Within the City Limits of Newport and it’s
Extraterritorial Jurisdiction (ETJ):
The tax parcels that are wholly or partially in the city limits and ETJ of Newport
show that all or a portion of 601 parcels in Newport and it’s ETJ are exposed to a 100
year flood risk (A and AE). These parcels encompass 13,827.13 acres.
Zero parcels in Newport and it’s ETJ are exposed to a 100 year flood with wave action
risk (VE).
All or a portion of 385 parcels in Newport and it’s ETJ are exposed to a 500 year flood
risk (X500). These parcels encompass 9,996.44 acres.
Zero parcels in Newport and it’s ETJ are exposed to a body of open water with no
defined flood hazard (UNDES).
100 and 500 Year Flood Risk Within the City Limits of Bogue:
The tax parcels that are wholly or partially in the city limits of Bogue show that all or a
portion of 88 parcels in Bogue are exposed to a 100 year flood risk (A and AE). These
parcels encompass 1,125.13 acres. All or a portion of 15 parcels in Bogue are exposed to
a 100 year flood with wave action risk (VE). These parcels encompass 865.89 acres.
All or a portion of 89 parcels in Bogue are exposed to a 500 year flood risk (X500).
These parcels encompass 1,114.73 acres. Zero parcels in Bogue are exposed to a body of
open water with no defined flood hazard (UNDES).
100 and 500 Year Flood Risk Within the City Limits of Cape Carteret:
The tax parcels that are wholly or partially in the city limits of Cape Carteret show that
all or a portion of 372 parcels in Cape Carteret are exposed to a 100 year flood risk (A
and AE). These parcels encompass 510.63 acres.
All or a portion of 34 parcels in Cape Carteret are exposed to a 100 year flood with wave
action risk (VE). These parcels encompass 30.08 acres.
All or a portion of 291 parcels in Cape Carteret are exposed to a 500 year flood risk
(X500). These parcels encompass 417.77 acres.
Zero parcels in Cape Carteret are exposed to a body of open water with no defined flood
hazard (UNDES).
100 and 500 Year Flood Risk Within the City Limits of Cedar Point:
64
The tax parcels that are wholly or partially in the city limits of Cedar Point show that all
or a portion of 434 parcels in Cedar Point are exposed to a 100 year flood risk (A and
AE). These parcels encompass 865 acres.
All or a portion of 195 parcels in Cedar Point are exposed to a 100 year flood with wave
action risk (VE). These parcels encompass 201 acres.
All or a portion of 301 parcels in Cedar Point are exposed to a 500 year flood risk
(X500). These parcels encompass 795 acres.
Zero parcels in Cedar Point are exposed to a body of open water with no defined flood
hazard (UNDES).
100 and 500 Year Flood Risk Within the City Limits of Peletier:
The tax parcels that are wholly or partially in the city limits of Peletier show that all or a
portion of 100 parcels in Peletier are exposed to a 100 year flood risk (A and AE). These
parcels encompass 811.18 acres.
Zero parcels in Peletier are exposed to a 100 year flood with wave action risk (VE).
All or a portion of 88 parcels in Peletier are exposed to a 500 year flood risk (X500).
These parcels encompass 812.99 acres.
Zero parcels in Peletier are exposed to a body of open water with no defined flood hazard
(UNDES).
4.2 Future Vulnerability
The North Carolina State Data Center (NCDC) information indicates that Carteret
County was the sixth fastest growing Coastal Area Management Act (CAMA) -regulated
county, and the 24th fastest growing county in the entire state. A large percentage of the
growth has occurred in the incorporated beach communities and in areas near the
extraterritorial jurisdiction of existing municipalities. This population growth has
occurred due to a national trend of migration to non-metropolitan areas, expansion of
military facilities and activities, industrial development, tourism, and the migration of
retirees.
POPULATION GROWTH 2000 TO 2010
65
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
60,719
61,587
62,326
63,085
63,904
64,765
65,633
66,406
67,167
67,956
68,759
POPULATION GROWTH 2010 TO 2020
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
69,517
70,164
70,830
71,556
72,329
73,102
73,771
74,429
75,120
75,820
As a county’s population increases, so does the housing, transportation, sewer/water
lines, utility lines, and other infrastructure. This increased population and infrastructure
equates to increased vulnerability for lives and property.
A number of factors have an influence on the vulnerability of Carteret County. First, the
land use regulatory scheme is important. Areas that have currently have a low level of
vulnerability because they are vacant or have low-density of properties can become
highly vulnerable if land use regulations allow for improvements or increases in density
in the area. Mitigation measures in Carteret County will also have an effect. For
instance, if strict enforcement of hurricane standards in building codes are not enforced,
an area’s vulnerability may increase. Good planning for redevelopment after a natural
disaster can also decrease Carteret County’s vulnerability. Policies should be formulated
that will allow and encourage redevelopment that will decrease vulnerability in the
future. For instance, Carteret County could decide not to allow redevelopment or repair in
the 100-year floodplain where houses were damaged.
Carteret County should also be aware of what other county neighbors are doing to
mitigate their disasters, because their measures may adversely affect Carteret County.
For instance, if a dam is put in place in an upstream county, Carteret County may
experience increased flooding.
4.3 Impact on Population
Particular segments of the overall population are often overlooked in mitigation planning.
It has become common knowledge that some suffer more severely from the devastation
caused by natural disasters than others. Research has shown that minorities, African
Americans in particular, are disproportionately located in poor quality housing segregated
66
into low-valued neighborhoods. That is, (1) minority households are more likely to live
in conditions subject to greater damage from natural hazards; and (2) these same groups
will take longer to recover because they do not have the capacity nor the access to
resources that other groups possess. Having this established, an obvious general area of
concern with regard to mitigation planning is the impact of disasters on populations like
these.
Some of the vulnerable portions of Carteret County’s population are covered in the maps
in the previous section. These maps include:
• The Total Population Living Below Poverty Level (Per 1990 Census) Within a
Flood Zone.
• The Total Population (As Determined by 1990 Census Blocks) that is Under the
Age of 18 and Within a Flood Zone
• People Over the Age of 65 Within a Flood Zone in Carteret county (As Per 1990
Census Blocks)
4.4 Impacts on Property (Repetitive Loss Properties)
Carteret County was established in 1722 and contains 1,049 square miles, of which 534
square miles are land. There are approximately 509,000 acres of land within county
boundaries. Land uses in Carteret County range from urban residential and commercial
development to low intensity rural and agricultural land uses outside the towns. There
are four maps in the previous section that detail development in Carteret County. These
maps are titled:
1. Land Cover Within the 100 and 500 Year Flood Zones
2. Developed, Not Developed, Undevelopable, and Publicly Owned Land in
Carteret County
3. Developed, Not Developed, Undevelopable, and Publicly Owned Land Within
Flood Zones
In the previous section, Tax Parcels (Containing Mobile Home and RV Parks) That
are Within a Flood Zone, shows the tax parcels containing mobile homes that reside
within Carteret County. Significant differences exist between mobile homes built under
previous HUD standards and new standards (revised in July, 1994). Older mobile homes
will only withstand winds of about 75mph. HUD requires that newly manufactured
homes be able to withstand winds of 100mph in inland counties, more for homes located
near the coast. The weight of mobile homes has increased from about 16,000 pounds to
40,000 pounds. Anchoring requirements have increased from 5 - 6 anchors per side to 11
- 14 anchors per side. Each anchor consists of a weighted disc buried in the ground with a
steel cable attached to the house. However, since these HUD standards have only been in
place since July, 1993, this leaves a large portion of mobile homes in Carteret County
vulnerable to damage from hurricanes, tornadoes, and of other storms.
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Under the National Flood Insurance Reform Act of 1994, the definition of "repetitive loss
structure" is a building covered by a contract for flood insurance that has incurred floodrelated damages on 2 occasions during a 10-year period. The 10-year period ends on the
date of the event for which a second claim is made, in which the cost of repairing the
flood damage, on the average, equaled or exceeded 25% of the market value of the
building at the time of each such flood event.
According to FEMA officials, approximately 84,000 NFIP-insured buildings nationwide
have suffered multiple flood losses since 1968. About 36,000 of those buildings have
suffered two or more flood losses within a 10-year period that exceeded $1,000 each.
Repetitive loss properties account for about a third, 32 percent, of NFIP losses. To date,
the total amount paid in claims for repetitive loss properties is $3.2 billion. In addition,
despite clear successes, FEMA director James Witt believes that there is considerable
work yet to be accomplished, not only under NFIP, but also under the disaster relief and
recovery programs of FEMA. Specifically, FEMA has two critical goals: 1) to reduce the
disaster relief expenditures to communities that are mired in a damage-repair, damagerepair cycle and 2) to reduce the flood insurance subsidy to the owners of structures that
have experienced repetitive flood losses.
4.5 Critical Facilities
This section provides for the identification of critical/vital facilities. Many of these
identified facilities would be vital to emergency response during a major emergency or
disaster event. Other facilities would be critical for immediate and long-term recovery
operations. Several categories of vital facilities and resources have been identified in
Carteret County including:
•
•
•
•
•
•
•
•
•
•
•
•
•
Shelter facilities
Health/Medical facilities
Government facilities
Communications facilities
Public buildings
Emergency service facilities
Transportation networks
Energy facilities
Water distribution/waste water facilities
Correctional facilities
Congregate Care facilities
Daycare facilities
Hospitals
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V. Capability Analysis
5.1 Legal Capability Analysis
Enabling legislation in North Carolina grants a wide array of powers to its cities, towns
and counties. This section of the mitigation plan examines each of the powers available to
the County enumerated in the North Carolina General Statutes, to identify which can be
wielded to craft hazard mitigation measures.
As cautioned in the DEM’s Mitigation Planning Manual however, it should be noted that
these powers do not supersede those mandates established by Federal and state
constitutions, which must be followed during any governmental undertaking. For
instance, the Fourteenth Amendment requires that all governmental activity be
undertaken only with due process of law. Any restrictions which local governments
impose on land use or building practices must follow the procedural requirements of the
Fourteenth Amendment, or risk invalidation. With all of this in mind, there are a number
of items of relevance to establishing that Carteret County has the authority to develop a
hazard mitigation plan.
5.1.1 General Authority
According to North Carolina General Statutes (N.C.G.S.), a county may by ordinance,
“…define, prohibit, regulate, or abate acts, omissions, or conditions, detrimental to the
health, safety or welfare of its citizens, and the peace and dignity of the county, and may
define and abate nuisances…” (G.S. 153A-121). The previous statement refers to the
general ordinance making power of the County. Since hazard mitigation can be
considered protection of public health, safety and welfare, the County may include
requirements for hazard mitigation in local ordinances. The County may also use its
ordinance-making power to abate "nuisances," which could include any activity or
condition making people or property more vulnerable to any hazard. With regard to the
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development and implementation of these measures, N.C.G.S. grants the authority to the
County to create planning agencies.
General Statute 153A-321, states that any county may by ordinance, create or designate
one or more agencies to perform the following duties:
1. Make studies of the county and surrounding areas;
2. Determine objectives to be sought in the development of the study area;
3. Prepare to adopt plans for achieving these objectives;
4. Develop and recommend policies, ordinances, administrative procedures, and
other means for carrying out plans in a coordinated and efficient manner;
5. Advise the board of commissioners concerning the use and amendment of means
for carrying out the plans;
6. Exercise any functions in the administration and enforcement of various means
for carrying out plans that the board of commissioners may direct;
7. Perform any other related duties that the board of commissioners may direct.
In carrying out its hazard mitigation plans, Carteret County has a number of broad
techniques at its disposal, including acquisition of structures, regulation of land use and
the enforcement of building codes. In addition, each of these tools has it’s own
associated enabling legislation. The following list highlights those broad categories of
activities and provides a specific reference where each may be located within the
N.C.G.S:
(1) Building Codes & Inspection— While North Carolina has a state compulsory
building code which applies throughout the state. Municipalities and counties may
adopt codes for their respective areas if approved by the state as providing "adequate
minimum standards." (N.C.G.S. 143138(e)). Local regulations cannot be less
restrictive than the state code. Local governments in North Carolina are also
empowered to carry out building inspection. N.C.G.S. Ch. 160A, Art. 19. Part 5; and
Ch. 153A Art. 18, Part 4 empower cities and counties to create an inspection
department. It also enumerates that department’s duties and responsibilities, which
include enforcing state and local laws relating to the construction of buildings,
installation of plumbing, electrical, heating systems, etc.; building maintenance; and
other matters.
(2) Land Use-- Land use regulatory powers include the power to engage in planning,
enact and enforce zoning ordinances, floodplain ordinances, and subdivision
controls.
a. Zoning—The County is authorized to divide its territorial jurisdiction into
districts, and to regulate and restrict the erection, construction, reconstruction,
alteration, repair or use of buildings, structures, or land within those districts.
Districts may include general use districts, overlay districts, and special use
districts or conditional use districts. Zoning ordinances consist of maps and
written text. (N.C.G.S. 160A-382).
b. Floodway Regulation-- For the purpose of controlling and minimizing the extent
of floods, the county is empowered to grant permits for the use of floodways,
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including the placement of any artificial obstruction in the floodway. (N.C.G.S.
143215.53 - 215.54).
(3) Acquisition—The highest priority of the DEM’s Hazard Mitigation Grant Program
is Acquisition and/or Elevation of Primary Residences. This is because acquisition is
seen as a permanent solution. North Carolina legislation empowers cities, towns, and
counties to acquire property for public purpose by gift, grant, devise, bequest,
exchange, purchase, lease or eminent domain. (See, e.g., N.C.G.S. Ch 153A. Art. 8;
Ch. 1600A. Art. 11).
(4) Taxation--Local units of government have the authority to levy special assessments
on property owners. Taxation is for all or part of the costs of acquiring,
constructing, reconstructing, extending or otherwise building or improving beach
erosion control or flood and hurricane protection works within a designated area
(N.C.G.S.160A-238). This can serve to increase the cost of building in such areas,
thereby discouraging development.
While each of the aforementioned laws are important to note, it should also be noted that
before adopting or amending any ordinance, the N.C.G.S. requires that the County board
of commissioners hold a public hearing on the matter. Specifically, the board is required
to notify the public of the hearing by advertising it once a week for two successive
calendar weeks in a newspaper having general circulation in the area. In addition, the
notice should not be published less than ten days or more than 25 days before the date of
the hearing (See GS 160A-364; Procedure for adopting or mending ordinances).
5.1.2. North Carolina Emergency Management Act of 1977
Under this Article, the authority and responsibilities of State agencies and local
governments in prevention of, preparation for, response to and recovery from natural or
man-made disasters or hostile military or paramilitary action are:
(1) Reduce vulnerability of people and property of this State to damage, injury, and loss
of life and property;
(2) Prepare for the prompt and efficient rescue, care and treatment of threatened or
affected persons;
(3) Provide for the rapid and orderly rehabilitation of persons and restoration of
property; and
(4) Provide for cooperation and coordination of activities relating to emergency and
disaster mitigation, preparedness, response and recovery among agencies and
officials of this State. This coordination should also include other similar agencies
and officials of other states, with local and federal governments, with interstate
organizations and with other private and quasi-official organizations.
According to section 166A-7 of this article, the governing body of each county is
responsible for emergency management, as defined in G.S. 166A-4, within the
geographical limits of such county. Further, all emergency management efforts within
the county will be coordinated by the county. The latter includes the activity of
municipalities within the county. In carrying out the provisions of this Article, each
political sub-division is authorized:
71
(1) To appropriate and expend funds, make contracts, obtain and distribute equipment,
materials, and supplies for emergency management purposes and to provide for the
health and safety of persons and property, including emergency assistance,
consistent with this Article;
(2) To direct and coordinate the development of emergency management plans and
programs in accordance with policies and standards set by the State;
(3) To assign and make available all available resources for emergency management
purposes for service within or outside of the physical limits of the subdivision; and
(4) To delegate powers in a local state of emergency under G.S. 166A-8 to an
appropriate official.
5.1.3. Existing Mitigation
This section of the legal capability identifies "de facto" mitigation measures - those that
may be designed for another purpose, but which, nevertheless, have an effect (either
positive or negative) on mitigation. The purpose here is to provide a mechanism to cite
and take credit for systems that exist and are working in the community to reduce hazard
vulnerability and to avoid duplication of effort when new systems and programs are
recommended. Currently, there are some regulations in place in Carteret County that are
useful for mitigation. A more exhaustive list of specific policy suggestions will be
presented later in the plan; nevertheless, the following list identifies the key elements of
documents already in place in the County:
(1) Carteret County Flood Damage Prevention and Protection Ordinance - Key
elements of the this ordinance for the purpose of hazard mitigation are:
Article I. In General
A. SECTION 7-2:This section establishes that the flood hazard ordinance shall
apply to all special flood hazard areas within the jurisdiction of Carteret County
B. SECTION 7-3 Compliance: Prohibits the location, extension, conversion or
structural alteration without full compliance with the terms of the ordinance
C. Section 7-4 Penalties for Violation: Establishes penalties for the violation of
conditions and safeguards set forth in the ordinance.
D. SECTION 7-5: Establishment of Development Permit: Requires a development
permit in conformance with the ordinance prior to the commencement of any
development activities
72
Article II. Administration
E. SECTIONS 7:36-37. Establishment of and duties of building
inspector/floodplain administrator. The key duties and responsibilities of the
floodplain administrator are:
a. Review all development permits to assure that the permit requirements of this
chapter have been satisfied.
b. Assure that maintenance is provided within the altered or relocated portion of
the watercourse so that the flood-carrying capacity is not diminished.
c. Prevent encroachments within floodways unless the certifications and floodhazard reduction provisions of article III are met.
d. Make on-site inspections of projects in accordance with section 7-39.
Serve notices of violations, issue stop-work orders, revoke permits and take
corrective actions in accordance with section 7-39.
Article III. Flood-Hazard Reduction
F. Section 7:66-67: Standards, An inventory of general and specific standards
required in all areas of special flood hazard. Key policies here are:
a. All new construction and substantial improvements shall be constructed with
materials and utility equipment resistant to flood damage.
b. All new construction or substantial improvements shall be constructed by
methods and practices that minimize flood damages.
c. Nonconforming buildings or uses may not be enlarged, replaced, or rebuilt
unless such enlargement or reconstruction is accomplished in conformance
with the provisions of this chapter.
d. Floodways. Since the floodway is an extremely hazardous area due to the
velocity of floodwaters which carry debris, potential projectiles, and has
erosion potential, the County regulates the use of these areas.
e. Coastal high hazard areas (V-Zones). These areas have special flood hazards
associated with wave wash, therefore, and in accordance with the Coastal
Area Management Act (CAMA), the County also regulates land use in these
areas.
G. SECTION 7-68. STANDARDS FOR STREAMS WITHOUT ESTABLISHED
BASE FLOOD ELEVATIONS AND/OR FLOODWAYS.
H. SECTION 7-69. STANDARDS 0R SUBDIVISION PROPOSALS.
(2) Carteret Zoning Ordinance - Adopted June 15, 1990 and enacted to promote the
health, safety, morals and general welfare of the county. Key sections of the
ordinance for mitigation purposes are: \
a. 1602 Development within Flood-Zones. Any development within a V or A
zone must meet the minimum height requirements as per the FIRM maps.
b. 1603 Development within Coastal Area Management Zone. Prior to the
issuance of zoning permits, required CAMA permits must have been issued.
73
(3) Coastal Area Management Act (CAMA) - In addition to its flood damage
prevention ordinance, Carteret is one of 20 coastal counties in North Carolina that
must comply with the regulations of the Coastal Area Management Act (CAMA).
Section 113A-110, of CAMA calls for the development of land-use plans that must
consist of statements of objectives, policies, and standards to be followed in public
and private use of land within the county. This information must be supplemented
by maps and give special attention to the protection and appropriate development of
areas of environmental concern designated under Part 3 (see below). The
importance of CAMA regulations to hazard mitigation is that they prohibit
development which is inconsistent with the approved land-use plan for the county in
which it is proposed. In addition, no local ordinance or other local regulation shall
be adopted which, within an area of environmental concern, is inconsistent with the
land-use plan of the county or city in which it is effective.
Related to the previous discussion, the North Carolina Coastal Resources Commission
(CRC) designates geographic areas of the coastal area as areas of environmental concern
and specifies their boundaries. As it relates to mitigation planning, it should be noted that
an area of environmental concern for coastal North Carolina is natural hazards.
According to the CRC, natural-hazard areas are those where uncontrolled or incompatible
development could unreasonably endanger life or property, and other areas especially
vulnerable to erosion, flooding, or other adverse effects of sand, wind and water, which
may include:
A. Sand dunes along the Outer Banks;
B. Ocean and estuarine beaches and the shoreline of estuarine and public
trust waters;
C. Floodways and floodplains;
D. Areas where geologic and soil conditions are such that there is a
substantial possibility of excessive erosion or seismic activity, as
identified by the State Geologist;
F. Areas with a significant potential for air inversions, as identified by the
Environmental Management Commission.
5.1.4. Conclusion
This purpose of this legal capability analysis was to establish the authority the County has
to engage in hazard mitigation activity. However, according to the DEM’s Mitigation
Planning Manual, any mitigation measure undertaken by the local government in its
regulatory capacity must be worded and enforced carefully within the parameters
established by state and federal Constitutions. This is true even when such measures are
authorized by the General Statutes of North Carolina, and are enacted in order to protect
public health and safety from the impacts of natural hazards.
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5.2 Institutional Capability Analysis
Given that capability is affected by a local government’s institutional framework, an
institutional capability assessment describes the departmental resources of local
government to develop and implement a hazard mitigation program. According to the
guidelines of the NC DEM, a description of the type of government, including an
"inventory" of key sections, is an essential component of a hazard mitigation plan's
capability assessment. With that in mind, the purpose of this assessment is to identify all
local governmental agencies, departments, and offices with responsibility for the various
stages of emergency management (preparation, response, and recovery) as well as for
mitigation. Following the direction of The NC Planning Initiative, the County completed
an institutional capability analysis.
It should be noted that Carteret County is governed by a county manager, under the
direction of the board of commissioners. While the manager is the chief administrator of
county government, that person is responsible to the board of commissioners for the
administration of all departments of county government under the board's general control
(NCGS 153A-82). In addition, the board of commissioners may create, change, abolish,
and consolidate offices, positions, departments, boards, commissions, and agencies of the
county government. The board can also impose the duties of more than one office on a
single officer, change the composition and manner of selection of boards, commissions,
and agencies, and generally organize or reorganize the county government in order to
promote the orderly and efficient administration of county affairs (NCGS 153A-76).
The matrix below provides a listing of those County agencies/departments that could
potentially play a vital role in one or more of the various stages of emergency
management.
The column headings identify the commonly recognized phases of
emergency management. A check mark or an X indicates that the agency could be
utilized in that particular phase.
5.2.1. Carteret County Institutional Capability
Agency/Department
BUILDING INSPECTOR
EMERGENCY
MANAGEMENT
MOSQUITO CONTROL
ANIMAL CONTROL
CO-OP EXT SERVICES
COMMUNITY
SERVICES
COUNTY ENGINEER
FINANCE
Preparedness
X
X
Response
Recovery
Mitigation
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
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DEPARTMENT
FOOD STAMP
PROGRAM
HEALTH DEPARTMENT
COUNTY
MAINTENANCE
PLANNING
DEPARTMENT
SOCIAL SERVICES
SOIL & WATER
COUNTY TAX
ASSESSORS
NATURAL RESOURCES
CONSERVATION
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
5.2.2. Conclusion
The purpose of this institutional capability analysis was to inventory the departmental
resources of the County to engage in all phases of hazard management. The departments
or agencies included in the above matrix were included based on an understanding of
their current activities and their potential for contributing to ensuring public health, safety
and protection of property from disaster events. Ultimately, this assessment will assist
the County in its efforts to organize or reorganize itself in order to promote the orderly
and efficient administration of county affairs.
5.3 Political Capability
The institutional capability of a local community is obviously linked to its political
capability. Many of the officials listed in the institutional framework analysis will be
politicians, whose decisions are sometimes swayed by the political climate of the moment
rather than by the long-range benefit to the community. Analyzing how mitigation can be
inserted into everyday decision-making as a routine course can go a long way to depoliticizing the issue. If mitigation comes to the forefront of the community's important
issues, local politicians cannot do other than promote mitigation. Public education and
awareness campaigns about the economic efficiency and social utility of mitigative
measures in the long run can help foster its general acceptance by citizens, and in turn by
politicians. With this in mind, the County used a number of techniques to foster
community consensus.
5.3.1
Organize to Prepare the Plan
Carteret County received a HMGP grant to develop a hazard mitigation plan. As
required by the HMGP, a designated agent was selected by County Commissioners to
oversee the development of the plan. This represents the first step in the plan
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development. The Grant was awarded and is being implemented through the Carteret
County Emergency Services office, under the direction of Mike Addertion. The services
of a professional planning consultant (Geographic Technologies Group) were reserved to
provide assistance with data collection and the development of Geographic Information
Systems (GIS) technology. A departmental needs assessment was then conducted to
inventory hazard management/mitigation capabilities in terms of resources, facilities,
hardware and software. The information for both the needs assessment and the capability
assessment was collected in a number of ways.
One method was the use of digital hazard identification data from the North Carolina
Center for Geographic Information and Analysis. This data provided a valid starting
point for gathering information for the vulnerability assessment. Personal interviews
with local county government and municipality officials were also used to identify
existing capabilities. These interviews were helpful in contributing toward developing the
critical professional relationship needed to build a mitigation network. Also, these
personal interviews allowed in-depth questioning when a particular question or response
prompted additional questions.
Where interviews were not possible, survey
questionnaires were used to obtain data regarding each department’s specific programs
and authorities. These surveys, like the interviews, sought information from appropriate
representatives about their department’s day-to-day and emergency programs. In
addition, questionnaires allow respondents the opportunity to make recommendations for
improvement in their own agencies and in others where it might not otherwise be
welcomed.
5.3.2
Involve the Public
Prior to beginning work on the implementation plan, a “kick-off” meeting was held to
describe the project approach, the goals and objectives of the project, technical services
available to the county and municipalities, the project schedule and expected
deliverables. The intent of this initial meeting was to enable all participating
communities and County departments a chance to comment on the scope of services.
Another meeting was held in order to allow public comment during the process. This
meeting was held following the completion of the data collection and vulnerability
assessment phases of the planning process. A second meeting will be held to allow
public comment on a draft plan. A final meeting will be held to present the final plan.
This process is in accordance with state guidelines, which hold that before adopting or
amending any ordinance, the N.C.G.S. requires that the County board of commissioners
hold a public hearing on the matter. Specifically, the board is required to notify the
public of the hearing by advertising it once a week for two successive calendar weeks in a
newspaper having general circulation in the area. In addition, a notice should not be
published less than ten days or more than 25 days before the date of the hearing (See GS
160A-364; Procedure for adopting or mending ordinances).
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5.3.3
Coordinate with Other Agencies
In developing the HMPI, the NCDEM placed emphasis on inter-disciplinary technical
assistance. To achieve this, the NCDEM assembled a team of technical and planning
experts to assist the HMPI communities. In the process, the state effectively linked key
institutions and organizations that have roles in various aspects of hazard mitigation,
including government agencies, academia, consultants, and the private sector. For
example, technical assistance for plan formulation was provided by the Mitigation
Planning Initiative Group (MPIG), from the University of North Carolina at Chapel Hill.
The North Carolina Center for Geographic Information and Analysis (CGIA) provides
data on hazards and vulnerability. Other state agencies are involved, including the
Division of Community Assistance and the Division of Coastal Management. An outside
consultant was brought in to provide GIS training to HMPI communities to support
hazard identification and vulnerability assessment.
In addition to the above, the Carteret County was careful to solicit the input of as many
officials from the local municipalities, county departments, regional state offices and
non-governmental organizations as possible. In general, it was anticipated that
opposition to the final plan would be low given the recent history of the County with
flood events. That is, it has been demonstrated in disaster planning literature that in some
cases citizens place mitigation high on their agendas as much as a year and a half after
the most recent events. Given that North Carolina faced three major hurricanes in less
than four years, most county residents understand the risk they face and favor a proactive
approach.
It should be noted that the County is responsible for monitoring and evaluating
implementation of the hazard mitigation plan. After the plan has been completed and
distributed, the Coordinator is responsible for stimulating, coordinating, and managing
the implementation of the plan. Development of a comprehensive mitigation program is a
continuing process and depends on the active involvement of the County in
implementing, monitoring, evaluating, and updating the plan. It is important to realize
that this ongoing process does not end once the plan has been written.
5.4 Fiscal Capability
The County’s flood problems and its other needs are unique. The County will need to
determine how much and what kind of financial support is necessary to minimize
disruption from flooding and to manage floodplains to meet other community goals.
There are many diverse sources of funding available to communities to implement local
hazard mitigation plans, including both government and private programs. Often an
organization with particular focus will fund only part of a project. However, with
coordination, the community can combine the funding efforts of one program with those
of another, thereby serving multiple missions. Whatever is done, it will likely require
allocation or reallocation of local resources combined with outside sources of assistance.
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In some situations, the County will need to make long-term plans for the continuity of the
effort and for future budgets. Be ready to answer questions like these:
• Why are local funds being spent to correct flood problems when we have so many
other, higher priorities?
• What other community programs will have to be reduced or to pay for this
program?
• Why should all of us have higher taxes, when only those people near the river
need flood protection?
It is obvious that the more support that has been built, the easier it will be to justify using
local resources. When individuals and organizations with diverse concerns and agendas
already know how they will benefit from various floodplain measures, the support is
broadened, and the task simplified.
5.4.1
Resources You Can Use To Cope With Hazards
5.4.1.1 Federal Programs
National Oceanic And Atmospheric Administration. Funds to assist States in
implementing and enhancing Coastal Zone Management programs that have been
approved by the Secretary of Commerce. Any coastal state is eligible and cooperative
agreements may be used only to implement and enhance the States' approved Coastal
Zone Management programs. This includes personnel salaries, travel and other related
costs required to support the administration of the program. Ten to twenty percent of
funds are available annually to develop new program requirements under Section 309 in
the areas of coastal wetlands management and protection; natural hazards management
(including potential sea and Great Lakes level rise); public access improvements;
reduction of marine debris; assessment of cumulative and secondary impacts of coastal
growth and development; special area management planning; impacts of coastal growth
and development; special area management planning; ocean resource planning; and siting
of coastal energy and government facilities.
North Carolina Division of Coastal Management. The Division of Coastal
Management awards grants in three areas: land use plan development and
implementation; public waterfront access; and pumpout installation. Land use planning
grants are available only to local governments; however, access and pumpout grants may
be available to individuals. For more information and to obtain application forms, go to:
http://dcm2.ehnr.state.nc.us/MAIN_PAGE.HTM or contact:
DIVISION OF COASTAL MANAGEMENT
1638 MAIL SERVICE CENTER
RALEIGH, NC 27699-1638
Phone: (919) 733-2293
Fax: 9919) 733-1495
U.S. Army Corps Of Engineers. The Corps of Engineers has several programs that help
communities deal with floods and flood-related problems before, during, and after a
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flood. The assistance is in the form of flood damage reduction and ecosystem restoration
projects and technical assistance before the flood and emergency support during and after
the flood. Projects include structural measures such as dams, channel modifications, and
levees, as well as nonstructural measures such as flood proofing, flood warning/
preparedness, permanent evacuation, and preservation of open space. They must be
justified, i.e., the benefits exceed the costs, and cost shared by a local sponsor (state
and/or community). Cost sharing for all projects (structural, nonstructural, and
hurricane/storm damage reduction) is 35% from local sponsors, including 5% cash. As a
part of their share of the costs, the local sponsors must provide lands, easements, rightsof-way, relocation/disposal sites and maintain the project after it is completed. Larger
projects require Congressional approval while smaller projects are often implemented
under the Corps' Continuing Authorities Program.
Emergency support is provided to augment state and community lifesaving or life
protecting efforts during and after a major or catastrophic flood disaster. This support is
provided only after the state and community have exhausted their resources. During the
flood, it includes advice on flood emergency preparations, personnel and materials for
flood fighting, search and rescue operations, emergency repairs to flood damage
reduction projects, and emergency supply of clean drinking water where sources are
contaminated. After the flood, it includes debris clearance and temporary construction of
emergency access mutes such as streets, roads, bridges, airfields, and any other facilities
necessary for passage of rescue personnel; emergency restoration of critical public
services and facilities for water supply, electric power, and firefighting; and technical
assistance and damage assessment, including safety inspection and stabilization or
demolition of damaged structures.
The Corps also, upon request, will rehabilitate publicly sponsored flood damage
reduction projects. The rehabilitation is limited to repair or restoration to pre-disaster
conditions and must be justified with the local sponsor providing 20% of the total costs.
Who to contact: the Floodplain Management Services Program Manager at your local
Corps division or district office. If you do not know how to reach them, write to
HQUSACE, ATTN: CECW-PF, Washington, D.C. 20314, or phone (202) 761-0169.
Federal Emergency Management Agency (FEMA). FEMA administers two programs
that can provide funds to local communities to implement measures to prevent future
damage from natural hazards.
The Hazard Mitigation Grant Program provides grants to states and local governments to
implement long-term hazard mitigation measures after a major disaster declaration. The
purpose of the program is to reduce future loss of life and property due to natural
disasters and to enable mitigation measures to be implemented during immediate
recovery from a disaster. A local government must apply for the HMGP through the state,
because the state is responsible for administering the program. FEMA can fund up to
75%of the eligible costs of each project and the state or local match does not need to be
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cash; in-kind services or materials may be used. Applicants should contact their State
Hazard Mitigation officer for specific details.
The Flood Mitigation Assistance Program (FMA) will provide grants to state and local
governments for planning assistance and projects that reduce the risk of future flood
damages, such as elevating homes, conversion of property to open space, or minor
drainage improvements. This program is available starting in 1997. Who to contact:
Region IV (Atlanta) (770) 220-4260;
U.S. Department Of Agriculture. The U.S. Department of Agriculture (USDA) offers
landowners financial, technical, and educational assistance to implement conservation
practices on privately owned land. With the help offered by USDA, farmers and ranchers
can carry out land management practices that reduce soil erosion, improve water quality,
and enhance forest land, wetlands, and wildlife habitat. Incentives offered by USDA
agencies promote sustainable agricultural practices, which protect and conserve valuable
farmland for future generations. USDA assistance also helps individuals and
communities restore natural resources after floods, fires, or other natural disasters.
The following programs are managed by the USDA's Farm Service Agency and Natural
Resources Conservation Service:
Emergency Conservation Program (ECP) provides financial assistance to farmers and
ranchers for restoring farmland damaged seriously enough by natural disasters to impede
normal farming operations. ECP also helps with funds for carrying out emergency water
conservation measures during periods of severe drought. Emergency conservation
assistance is available for removing debris and restoring permanent fences, dams, ponds,
irrigation systems, and other installations. Conservation problems that existed before a
disaster are not eligible.
Emergency Watershed Protection Program (EWP) is designed to reduce threats to life
and property in communities ravaged by natural disasters. It provides technical assistance
and cost sharing to restore watersheds. Assistance includes installing or repairing
conservation measures that prevent flooding and soil erosion. Measures include
establishing vegetative cover, gully control, and streambank protection devices; removal
of debris and sediment from channels; and repairing existing water control structures. In
subsequent storms, EWP projects protect homes, businesses, highways, and public works
from further damage. In addition, the Secretary of Agriculture may purchase floodplain
easements under EWP.
Flood Risk Reduction Program authorizes voluntary contracts that provide one lumpsum payment to producers with contract acreage on a farm with land that is frequently
flooded. The payment will equal 95% of 7-year market transition payments, and other
payments to offset estimated federal outlays on frequently flooded land. In return, the
producer agrees to comply with applicable wetlands and highly erodible land
requirements and to forego commodity loans, crop insurance, conservation program
payments, and disaster payments.
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Small Watershed Program assists farmers and small communities by solving natural
resource and related economic problems on a watershed basis. Participants must have a
government sponsor. Projects include watershed protection, flood prevention, erosion and
sediment control, water supply, fish and wildlife habitat enhancement, wetlands creation
and restoration, and public recreation in watersheds of 250,000 or fewer acres. Cost
sharing is paid to establish structural and management practices that protect watersheds,
prevent floods, control erosion and sediment, improve water quality, and create or
improve water supplies, wildlife habitat, wetlands, and public recreation.
Several other agencies also provide assistance to localities for flooding and floodplain
management. They include:
· U.S. Department of Commerce, National Weather Service
· U.S. Environmental Protection Agency
· U.S. Department of Housing and Urban Development.
The local, state, or regional office of these agencies to may be contacted to determine
what types of assistance they may be able to offer to the County. For details, contact the
local USDA Service Center
5.4.1.2 Non Federal Sources
Local governments may also engage in their own "fund-raising" efforts to pay for
mitigation programs that benefit the community at large. In North Carolina, local
governments are granted limited powers to raise revenue for public purpose. The General
Assembly has conferred upon cities, towns and counties the power to levy property taxes
for various purposes. Those purposes include: "ambulance services, rescue squads, and
other emergency medical services; beach erosion and natural disasters (including
shoreline protection, beach erosion control and flood and hurricane protection); civil
defense; drainage projects or programs; fire protection; hospitals; joint' undertakings with
other county, city, or political subdivisions; planning; sewage; solid waste; water; water
resources; watershed improvement projects." N.C.G.S. 16A-209. These statutes’
enumerated purposes make it clear that local governments are empowered to finance
certain emergency management activities, including mitigation activities, with property
taxes.
City councils are also empowered to establish Municipal Service Districts. Such districts
are designed for (among other purposes): beach erosion control and flood and hurricane
protection works; drainage projects; and watershed improvement projects. The use of
taxes and bonds for these purposes is also authorized." (N.C.G.S. 9160A-536). Through
this authorization, cities may delineate an area or areas in the community which are
particularly vulnerable to the impact of natural hazards. Below are other relevant North
Carolina laws:
§ 153A-189. State participation in improvement projects. If a county proposes to
undertake a project that would benefit land owned by the State of North Carolina or a
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board, agency, commission, or institution of the State and to finance all or a part of the
project by special assessments, the board of commissioners may request the Council of
State to authorize the State to pay its ratable part of the cost of the project, and the
Council of State may authorize these payments. The Council of State may authorize the
Secretary of Administration to approve or disapprove requests from counties for payment
pursuant to this section, but a county may appeal to the Council of State if the Secretary
disapproves a request. The Council of State may direct that any payment authorized
pursuant to this section be made from the Contingency and Emergency Fund of the State
of North Carolina or from any other available funds. Except as State payments are
authorized pursuant to this section, state-owned property is exempt from assessment
under this Article.
§ 153A-255. Authority to provide social service programs. Each county shall provide
social service programs pursuant to Chapter 108A and Chapter 111 and may otherwise
undertake, sponsor, organize, engage in, and support other social service programs
intended to further the health, welfare, education, employment, safety, comfort, and
convenience of its citizens.
§ 153A-376. Community development programs and activities. (a) Any county is
authorized to engage in, to accept federal and State grants and loans for, and to
appropriate and expend funds for community development programs and activities. In
undertaking community development programs and activities, in addition to other
authority granted by law, a county may engage in the following activities: (1) Programs
of assistance and financing of rehabilitation of private buildings principally for the
benefit of low and moderate income persons, or for the restoration or preservation of
older neighborhoods or properties, including direct repair, the making of grants or loans,
the subsidization of interest payments on loans, and the guaranty of loans; (2) Programs
concerned with employment, economic development, crime prevention, child care,
health, drug abuse, education, and welfare needs of persons of low and moderate income.
§ 153A-438. Beach erosion control and flood and hurricane protection works. A
county may appropriate revenues not otherwise limited as to use by law to finance the
acquisition, construction, reconstruction, extension, maintenance, improvement, or
enlargement of groins, jetties, dikes, moles, walls, sand dunes, vegetation, or other types
of works or improvements that are designed for controlling beach erosion, for protection
from hurricane floods, or for preserving or restoring facilities and natural features that
afford protection to the beaches and other land areas of the county and to the life and
property of the county.
§ 153A-440.1. Watershed improvement programs; drainage and water resources
development projects. (a) A county may establish and maintain a county watershed
improvement program pursuant to G.S. 139-41 or 139-41.1 and for these purposes may
appropriate funds not otherwise limited as to use by law. A county watershed
improvement program or project may also be financed pursuant to G.S. 153A-301, G.S.
153A-185 or by any other financing method available to counties for this purpose. (b) A
county may establish and maintain drainage projects and water resources development
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projects (as those projects are defined by G.S. 153A-301) and for these purposes may
appropriate funds not otherwise limited as to use by law. A county drainage project or
water resources development project may also be financed pursuant to G.S. 153A-301,
G.S. 153A-185, or by any other financing method available to counties for this purpose.
5.4.2
Conclusion
While federal and national programs carry out the bulk of disaster relief programs that
provide funds for mitigation, local governments are encouraged to open the search field
as widely as possible, and include alternative funding sources to supplement the local
hazard mitigation budget. For instance, local businesses and organizations will frequently
support projects that benefit their customers or employees, or which constitute good
"P.R." Other groups or individuals may be willing to donate "in-kind" services,
eliminating the need for cash. Often in-kind and volunteer services of local community
members can be counted toward the local share that is typically needed to match an
outside source of funds.
5.5 Technical Capability
5.5.1
Municipalities of Carteret County
Carteret County municipalities all have been given access to GIS and have received
training on ArcView.
5.5.1.1 Newport
Newport uses ArcView for planning tasks. The GIS is used for zoning and for FEMA
Flood Data. The data is used to calculate vulnerability in the event of a flood. Newport
has been provided copies of all the GIS data and a copy of the CHAMP software.
5.5.1.2 Bogue, Cape Carteret, Cedar Point, Peletier
All agencies in Carteret County have received training in ArcView and have been granted
a free copy of CHAMP for quick access to GIS data.
5.5.2 Carteret Hazard Mitigation Program (CHAMP) for all Organizations and
Smaller Entities
This hazard mitigation initiative has identified the need for disseminating a GIS based
hazard mitigation Tier 3 application throughout Carteret County. An overriding desire
stated in interviews is the ability to view GIS data quickly and with ease. MapObjects
was utilized to create a hazard mitigation data browser program that will be utilized for
quick access and printing of GIS layers. This will allow for the dissemination of GIS
data throughout Carteret County at a low cost.
One of the failings at many attempts to utilize new GIS programming languages, such as
MapObjects, is that programmers write code very specific to the needs of a single user or
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group of users. These applications have very little flexibility for customization. For
instance, if a user wants to change the color of a GIS layer or add a GIS layer, changes in
the program code are required. This is inefficient and often makes these programs too
rigid and not user friendly. This hard coding approach was avoided for Carteret County.
Code was written that allows an administrator to set up the data browser application
differently for different users. The data browser application targeted the following goals:
• Enterprise-wide GIS application for data browse and query
• Extremely user friendly ⎯ fully trained in two hours
• Designed with the latest GIS technology ⎯ ESRI MapObjects™ in conjunction
with Visual Basic™
• Must have an administration package for complete control of layers, colors, and
data
• Network ready for automatic update of configuration and setup files
• Easy to customize data setup and query configuration
• Supports imagery and ortho-photography
• Easy and quick setup
Some organizations put a Tier II product (ArcView) on everyone’s computer. Each
person is expected to learn how to use the software, access the files they desire,
customize the interface to suit their needs, etc. This never works for an organization.
Although easier than Tier 1 GIS products, Tier 2 GIS products are still too complex and
cumbersome for the average user. Staff does not have the time to dedicate to learning the
ins and outs of a new software product. They have a job to do. Most users only need a
few of the often used GIS functions. Therefore, a Tier 3 application that provides these
functions is the solution. This type of application will suffice for 75% of the daily GIS
needs of staff. This allows GIS to become an easy and indispensable tool, much like a
word processor.
Proper setup by an administrator allows users to become functional within minutes. The
administration part of the recommended data browser program allows an administrator to
control the following:
• Central administration from one point – Setup is done beforehand for each
user/group. A user will simply have to click an icon and all pertinent data will be
loaded and ready to use.
• Easy addition of layers by user/group
• Customization of colors
• Set up of drawing order
• Set up of easy to use predefined search mechanisms
• Set up of imagery access
• Automatic color changes to allow the use of imagery and GIS layers together
• Access to data via the network, locally, or CD
As stated above, the Tier 3 Data Browser gives users the most often used GIS
functionalities without the overhead of the arcane functions. The application allows a
user to zoom into an area visually, by geographic feature, parcel, address, or by a user
85
defined feature. A button for printing reports and maps is included. Through years of
experience and interviews with hundreds of users, GTG has been able to identify the
most used functionalities that should be included in a Tier 3 data browser. They are as
follows:
• Pan and zoom
• Identify any feature by clicking on the object
• Zoom quickly to an area by a often used geographical locator such as an address
• Quick and easy linear and area measurements
• Quick and easy addition of text and geometric features
• Ability to step backwards and forwards through views seen in a current session
• Ability to turn layers on/off, as well as just certain parts of a GIS layer. For
instance, a user may not want to see the entire flood GIS layer but just the 100year flood zone.
• Save a view for later use
• Customized map tips – automatically shows attributes of a feature just by rolling
the cursor across the screen
• Radius search – find features around another feature
• Display and export results of a search
This application is complete for Carteret County and will be installed in each department
and community participating in the hazard mitigation initiative.
Minimum and Suggested Specs
The following is the minimum and suggested specifications for PCs running GIS.
Tier 1 PC to run Arc/Info (Carteret County)
• 1 Windows NT Server and 1 Windows NT Workstation Operating System
• 450 MHz Pentium PC or greater
• 128 MB or RAM or greater
• 17” High Resolution Screen or greater
• Diskette Drive
• Iomega Zip Drive
• 24x CD-ROM Drive
• 8 Gigabyte Hard Drive for Workstation 16 Gigabyte or greater for Server
• 100 MBPS Ethernet card
Tier 2 PC to run ArcView – Minimum Configuration
• Windows 3.1
• 64 MB of Ram
• 15” Screen
• 300 MHz
• 100 MB of Unused Disk Space
• Diskette Drive
• 10 MBPS Ethernet card
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Tier 2 PC to run ArcView - Recommended Configuration
• Windows 95 or NT
• 128 MB of Ram
• 15” Screen
• 500 MHz or greater
• 200 MB of Unused Disk Space
• CD-ROM Drive
• Diskette Drive
• 100 MBPS Ethernet card
Tier 3 PC to Run MapObjects Custom Applications (CHAMP) – Minimum
Configuration
• Windows 95 or NT
• 64 MB of Ram
• 15” Screen
• 350 MHz
• 100 MB of Unused Disk Space
• Diskette Drive
Tier 3 PC to Run MapObjects Custom Applications (CHAMP) - Recommended
Configuration
• Windows 95 or NT
• 128 MB of Ram
• 15” Screen
• 450 MHz or greater
• 100 MB of Unused Disk Space
• CD-ROM Drive
• Diskette Drive
• 10 MBPS Ethernet card
VI. Mitigating Natural Hazards in Carteret County
6.1 Existing Mitigation in Carteret County
In carrying out its hazard mitigation plans, Carteret County has a number of broad
techniques already in place at its disposal, including acquisition of structures, regulation
of land use and the enforcement of building codes. By enforcing these established
regulations, the County will benefit from a balanced program that attacks not only
flooding, but also other community problems. No action prohibited in one ordinance
should be allowed under another. Where conflicts exist between County and state or
federal design standards, the more restrictive shall govern.
Carteret County has worked to develop the mitigation actions shown in Table II-1
Carteret County Mitigation Action Plan. Mitigation actions were developed with an eye
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toward reducing vulnerability to all natural hazards that can be addressed in a practicable
way at the local level. The listed actions do, however, primarily focus on ways Carteret
County can act to lessen and, ideally, eventually eliminate repetitive flood losses and
prevent future flood losses from inappropriate new development.
All the mitigation actions have been determined to be:
1. Cost effective, i.e. (returns or savings produced by implementation of the
action outweigh the cost of implementation);
2. Environmentally sound, i.e. (actions were designed to protect environmentally
fragile areas as natural stormwater storage areas); and
3. Technically feasible, i.e. (actions are to be undertaken by the County using
current staff and resources except where grant funds are available.)
In developing actions, the County relied on the following six mitigation policy categories
provided by FEMA:
1. Prevention (P) Measures
Prevention measures are intended to keep hazard problems from getting
worse. They are particularly effective in reducing a community’s future
vulnerability, especially in areas where development has not occurred or
where capital improvements have not been substantial. Examples of
prevention measures include:
(a) Comprehensive land use planning
(b) Zoning regulations
(c) Subdivision regulations
(d) Open space preservation
(e) Building code
(f) Floodplain development regulations
(g) Stormwater management
2. Property Protection (PP) Measures
Property protection measures protect existing structures by modifying the
building to withstand hazardous events, or removing structures from
hazardous locations. Examples of property protection measures include:
(a) Building relocation
(b) Acquisition and clearance
(c) Building elevation
(d) Barrier installation
(e) Building retrofit
3. Natural Resource (NR) Protection
Natural resource protection activities reduce the impact of natural hazards by
preserving or restoring natural areas and their mitigative functions. Such
areas include floodplains, wetlands, and dunes. Parks, recreation or
conservation agencies and organizations often implement these measures.
Examples include:
(a) Wetland protection
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(b)
(c)
(d)
(e)
(f)
Habitat protection
Erosion and sedimentation control
Best management practices (BMPs)
Stream dumping
Forestry practices
4. Emergency Services (ES) Measures
Although not typically considered a mitigation technique, emergency services
measures do minimize the impact of a hazard event on people and property.
These commonly are actions taken immediately prior to, during, or in
response to a hazard event. Examples include:
(a) Hazard warning system
(b) Emergency response plan
(c) Critical facilities protection
(d) Health and safety maintenance
(e) Post-disaster mitigation
5. Structural Projects (S)
Structural mitigation projects are intended to lessen the impact of a hazard by
modifying the environmental natural progression of the hazard event. The
projects are usually designed by engineers and managed or maintained by
public works staff. Examples include:
(a) Reservoirs, retention and detention basins
(b) Levees and floodwalls
(c) Channel modifications
(d) Channel maintenance
6. Public Information (PI) Activities
Public information and awareness activities are used to advise residents,
business owners, potential property buyers, and visitors about hazards,
hazardous areas, and mitigation techniques that the public can use to protect
themselves and their property. Examples of measures to educate and inform
the public include:
(a) Map information
(b) Outreach projects
(c) Library
(d) Technical Assistance
(e) Real estate disclosure
(f) Environmental education
Table II-1 - Explanation of Columns and Acronyms
Columns
Action #
Action # corresponds to FEMA mitigation policy categories listed above.
Action
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Description of action to be undertaken.
Hazard
Hazard which the action addresses.
Relative Priority
Low, moderate or high priority for funding and implementation.
Funding Sources
State and Federal sources of funds are noted, where applicable.
Responsible Party
Staff department responsible for undertaking the action. Note: The
Carteret County Board of Commissioners has ultimate authority to
approve any policy, program or regulation revisions.
Target Completion Date
Date by which the action should be completed.
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Table II-1: Carteret County along with Bogue, Cape Carteret, Cedar Point, Newport and Peletier Mitigation Action Plan
Action
#
Carteret County Actions
(including the Towns of Bogue, Cape Carteret, Cedar Point,
Newport and Peletier)
Preventative Actions
Review and include hazard mitigation policies at the next CAMA
P-1
Land Use Plan Update.
Develop a policy to minimize public services to proposed new
P-2
structures that will be located in 100-year floodplain areas.
Review the Floodplain Ordinance to provide improved flood
P-3
protection standards.
Update the land use regulatory ordinances by reviewing and
P-4
incorporating hazard mitigation objectives.
Review the Zoning Ordinance to allow for clustering of residential
P-5
lots.
Revise and update the regulatory floodplain maps.
P-6
P-7
P-8
P-9
P-10
P-11
P-12
P-13
P-14
Damage Assessments – Flood Damaged Structures.
Any and all portions of buildings that have been submerged for any
length of time will be inspected for flood related damage as well as
other conditions that may be dangerous to life, health or other
property.
Develop policy and procedures related to storm damage and
disconnected utility services.
Maintain and update County’s GIS System
Sponsor/Co-sponsor a hazard mitigation seminar for elected officials,
business leaders, and all municipal, county and regional
organizations (American Red Cross, Salvation Army, etc.) which
includes educational information on natural hazards, potential impact
and mitigation measures to reduce risk
Continue participation in FEMA’s Community Rating System
Establish a reconstruction policy that includes procedures for
issuance of building permits after a natural disaster
Apply for grant funding to enhance the County’s hazard mitigation
effort, as applicable.
Establish local and regional partnerships to identify funding sources
for natural hazard mitigation activities and seek to obtain funding.
Hazard
Relative
Priority
Funding
Sources
Responsible
Party
Target
Completion
Date
All
Moderate
Local
Planning Dept
Ongoing
Flood
Moderate
Local
Planning Dept
Ongoing
Flood
Moderate
Local
Planning Dept
Ongoing
All
Moderate
Local
Planning Dept
Ongoing
Flood
Moderate
Local
Planning Dept
Ongoing
Flood
High
High
State
Planning Dept
Inspection Dept
Tax Dept
Ongoing
Flood
Federal
State
Local
All
High
Local
Inspection Dept
Ongoing
All
High
Local
Continuous
All
Medium
Local
Planning Dept
Tax Dept
Planning Dept
Every 4 years
Flood
All
High
Medium
Local
Local
Planning Dept
Planning Dept
Continuous
January, 2006
All
Medium
Varies
Varies
All
Medium
Varies
All
Departments
All
Departments
91
Ongoing
Varies
Action
#
P-15
P-16
P-17
P-18
P-19
P-20
P-21
P-22
P-23
P-24
Carteret County Actions
(including the Towns of Bogue, Cape Carteret, Cedar Point,
Newport and Peletier)
Maintain the Hazard Mitigation Advisory Committee to continue
relationship building and keep updated on mitigation measures
taking place throughout the community
Require all new developments to submit stormwater management
plans as required by the State.
Encourage utilization of alternatives to impervious surfaces in all
projects.
Revise development ordinances to encourage use of alternatives to
impervious surfaces
Review wetlands maps for possible updates.
Hazard
Relative
Priority
Funding
Sources
Responsible
Party
All
Medium
N/A
All Departments
Flood
Medium
High
Planning
Inspections
Planning
Ongoing
Flood
Flood
High
Local
Private
Local
Private
Local
Ongoing
Erosion
Low
Local
Revise development ordinances to encourage shoreline vegetation
along marshes & other AEC's
Develop water shortage response guidelines
Coordinate with other utility providers to inform residents of drought
hazards and regional drought policies.
Coordinate with other utility providers to inform residents of water
conservation techniques.
Join the National Insurance Program
Erosion
Medium
Local
Drought
Drought
Medium
Medium
N/A
N/A
Drought
Medium
N/A
Flood
High
Local
Planning
Inspections
Planning
Tax Dept
Planning
Inspections
Public Works
Public Works
County Manager
Public Works
County Manager
Town of Peletier
Planning
Flood
Hurricanes
Severe Storms
Moderate
Low
Local
Local
All
Low
Local
Private
All
High
Local
All
High
Local
Property Protection
PP-1
Maintain a list of repetitive flood loss properties.
Monitor trees and vegetation on publicly owned property to assure
that no property or utility damage will occur as a result of diseased or
PP-2
dying trees/vegetation.
PP-3
Partner with Utility Companies to identify problem areas and work to
eliminate them where feasible.
Emergency Services
Ensure adequate evacuation warning in case of major hazard event.
ES-1
ES-2
Improve shelter capacities with alternate power/heat/air conditioning
92
Target
Completion
Date
Continuous
Ongoing
2 years /
annually
2 years / every 5
years
Ongoing
Ongoing
3 years / every 5
years
6 months
Planning
Public Works
Dept.
Parks & Rec.
Dept.
Public Works
Dept.
Utilities
Ongoing
Continuous
Emergency
Services
Emergency
Ongoing
Continuous
When funding
Action
#
Carteret County Actions
(including the Towns of Bogue, Cape Carteret, Cedar Point,
Newport and Peletier)
sources.
Hazard
Relative
Priority
Funding
Sources
Establish program to maintain continuity of government operations.
All
High
Local
Emergency
Services
Identify alternate Emergency Operations Center locations.
All
High
Local
Emergency
Services
Maintain current emergency response plan
All
High
Local
Familiarize local public officials with the principles and practices of
emergency management and emergency operations.
All
Medium
Local
Procure and maintain backup generators for all critical public
facilities. Evaluate the equipment on a regular basis to assure it
continues to meet the needs of the operations occurring at each
facility.
Prepare a Hazardous Material Action Plan that addresses proper
containment of spills, etc.
All
High
Varies
Emergency
Services
Department
Emergency
Services
Department
All Departments
Hazardous
Materials
Low
Local
Develop plan for consolidated E-911 dispatch center and EOC
located outside of floodplain.
All
High
Varies
Identify alternate detour routes from major arteries in the county.
All
High
Local
Emergency
Services
Department
Public Information
Place flood protection and other hazard education materials in all
PI-1
branches of the Carteret County public library system.
All
High
Local
Planning
All
High
Local
Planning
When funding
becomes
available
Ongoing
All
Low
Local
Planning Dept
Ongoing
Services
ES-3
ES-4
ES-5
ES-6
ES-7
ES-8
ES-9
ES-10
PI-2
PI-3
Maintain a zoning map (digital) that can be easily
reproduced/updated for staff and public use.
Conduct a natural hazard awareness program in County Schools
Responsible
Party
93
Fire Marshal
Fire
Departments
Emergency
Services
Department
Target
Completion
Date
becomes
available
When funding
becomes
available
When funding
becomes
available
Continuous
Bi-annual
following
election
When funding
becomes
available
January 2006
Ongoing
When funds
become
available
Ongoing
Action
#
PI-4
PI-5
PI-6
PI-7
PI-8
Carteret County Actions
(including the Towns of Bogue, Cape Carteret, Cedar Point,
Newport and Peletier)
Include articles in the papers/newsletters explaining hazard
mitigation and preparing for natural disasters
Promote nationally recognized “awareness” weeks (i.e. hurricane
preparedness, severe weather preparedness, etc.) through local media
Provide public links to relevant hazard mitigation websites.
Coordinate with other utility providers to inform residents of drought
hazards and regional drought policies.
Coordinate with other utility providers to inform residents of water
conservation techniques.
Hazard
Relative
Priority
Funding
Sources
Responsible
Party
All
Medium
Local
All Departments
Target
Completion
Date
Continuous
All
Medium
Varies
Planning Dept.
Continuous
All
Drought
Low
Medium
Local
N/A
Continuous
Ongoing
Drought
Medium
N/A
Planning Dept.
Public Works
County Manager
Public Works
County Manager
94
Ongoing
6.1.1
Building Codes and Inspection
While North Carolina has a state compulsory building code which applies throughout the
state, municipalities and counties may petition the State to adopt codes for their
respective areas if approved by the state as providing "adequate minimum standards."
6.1.2
Acquisition
The highest priority of the DEM’s Hazard Mitigation Grant Program is acquisition and/or
elevation of primary residences. North Carolina legislation empowers cities, towns, and
counties to acquire property for public purpose by gift, grant, devise, bequest, exchange,
purchase, lease or eminent domain.
6.1.3
Carteret County Flood Damage Prevention and Protection Ordinance
Key elements of this ordinance for the purpose of hazard mitigation are:
Article I. In General
• SECTION 7-2:This section establishes that the flood hazard ordinance shall apply
to all special flood hazard areas within the jurisdiction of Carteret County
• SECTION 7-3 Compliance: Prohibits the location, extension, conversion or
structural alteration without full compliance with the terms of the ordinance
• SECTION 7-4 Penalties for Violation: Establishes penalties for the violation of
conditions and safeguards set forth in the ordinance.
• SECTION 7-5: Establishment of development permit—Requires a development
permit in conformance with the ordinance prior to the commencement of any
development activities
Article II. Administration
• SECTIONS 7:36-37. Establishment of and duties of building inspector/floodplain
administrator. The key duties and responsibilities of the floodplain administrator
are:
1. Review all development permits to assure that the permit requirements of
this chapter have been satisfied.
2. Assure that maintenance is provided within the altered or relocated portion
of the watercourse so that the flood-carrying capacity is not diminished.
3. Prevent encroachments within floodways unless the certifications and
flood-hazard reduction provisions of article III are met.
4. Make on-site inspections of projects in accordance with section 7-39.
5. Serve notices of violations, issue stop-work orders, revoke permits and
take corrective actions in accordance with section 7-39.
Article III. Flood-Hazard Reduction
• Section 7:66-67: Standards, An inventory of general and specific standards
required in all areas of special flood hazard. Key policies here are:
1. All new construction and substantial improvements shall be constructed
with materials and utility equipment resistant to flood damage.
95
•
•
6.1.4
2. All new construction or substantial improvements shall be constructed by
methods and practices that minimize flood damages.
3. Nonconforming buildings or uses may not be enlarged, replaced, or rebuilt
unless such enlargement or reconstruction is accomplished in conformance
with the provisions of this chapter.
4. Floodways. Since the floodway is an extremely hazardous area due to the
velocity of floodwaters which carry debris, potential projectiles, and has
erosion potential, the County regulates the use of these areas.
5. Coastal high hazard areas (V-Zones). These areas have special flood
hazards associated with wave wash, therefore, and in accordance with the
Coastal Area Management Act (CAMA), the County also regulates land
use in these areas.
SECTION 7-68. Standards for streams without established base flood elevations
and/or floodways.
SECTION 7-69. Standards or subdivision proposals.
Carteret Zoning Ordinance
Adopted June 15, 1990 and enacted to promote the health, safety, morals and general
welfare of the county. Key sections of the ordinance for mitigation purposes are:
• 1602 Development within Flood-Zones. Any development within a V or A zone
must meet the minimum height requirements as per the FIRM maps.
• 1603 Development within Coastal Area Management Zone. Prior to the
issuance of zoning permits, required CAMA permits must have been issued.
6.1.5
Coastal Area Management Act (CAMA)
In addition to its flood damage prevention ordinance, Carteret is one of 20 coastal
counties in North Carolina that must comply with the regulations of the Coastal Area
Management Act (CAMA). Section 113A-110, of CAMA calls for the development of
Land-use plans that must consist of statements of objectives, policies, and standards to be
followed in public and private use of land within the county. This information must be
supplemented by maps and give special attention to the protection and appropriate
development of areas of environmental concern designated under Part 3 (see below). The
importance of CAMA regulations to hazard mitigation is that they prohibit development
which is inconsistent with the approved land-use plan for the county in which it is
proposed. In addition, no local ordinance or other local regulation shall be adopted which,
within an area of environmental concern, is inconsistent with the land-use plan of the
county or city in which it is effective.
Related to the previous discussion, the North Carolina Coastal Resources Commission
(CRC) designates geographic areas of the coastal area as areas of environmental concern
and specifies their boundaries. As it relates to mitigation planning, it should be noted that
an area of environmental concern for coastal North Carolina is natural hazards.
According to the CRC, natural-hazard areas are those where uncontrolled or incompatible
development could unreasonably endanger life or property, and other areas especially
96
vulnerable to erosion, flooding, or other adverse effects of sand, wind and water, which
may include:
•
Sand dunes along the Outer Banks;
•
Ocean and estuarine beaches and the shoreline of estuarine and public
trust waters;
•
Floodways and floodplains;
•
Areas where geologic and soil conditions are such that there is a
substantial possibility of excessive erosion or seismic activity, as
identified by the State Geologist;
•
Areas with a significant potential for air inversions, as identified by the
Environmental Management Commission.
6.2
Drought/Extreme Heat
6.2.1
Drought Mitigation Approaches and Recommendations
Historically, federal agencies were responsible for leadership in drought preparedness
and mitigation, and relief. However, by the 90s, most of the states had developed their
own drought contingency plan. Typically, a state task force is responsible for the
operation of the systems and is accountable to the governor. This task force keeps the
governor advised of the drought situation in the state and recommends policy options.
The state of North Carolina is now encouraging local governments to take a greater
interest and role in responding to droughts in their jurisdiction. Local preparedness,
community action, and cooperation are key to coping with a water shortage. Local
officials should organize their community, monitor local conditions, and implement
necessary action. Carteret County is in the process of developing a local water shortage
response plan designed to be put in place well before a shortage develops. Elements of
the plan include enactment of a water conservation ordinance, defining water use
classifications, and evaluating the system’s vulnerability to water shortages.
There are good reasons to plan for a drought. First of all, although droughts tend to be
low profile, analysis shows that they can be as expensive as hurricanes and floods. Also,
by planning ahead, suffering can be reduced at a lower cost.
An excellent source for current drought conditions in North Carolina can be found at the
web page for the North Carolina Drought Monitoring Council. This page can be found
at: http://www.dwr.ehnr.state.nc.us/drought/index.htm. This site assesses the conditions
in North Carolina and based on these conditions, makes recommendations on mitigation
actions. This site shows very detailed information on all regions in North Carolina
including information on forecast, rainfall, crops, stream flows, Palmer Index, lake and
reservoir levels, and public water supplies. This site is monitored by Emergency Services
personnel in Carteret County.
97
Drought mitigation for agricultural producers can include efficient irrigation and efficient
farming practices that reduce erosion, produce ground cover to protect soil from wind,
and allow fallow periods so the soil is not depleted. Farmers can also contact the Farm
Services Agency (http://www.fsa.usda.gov/pas/default.asp), part of the USDA, to discuss
crop insurance and conservation programs.
6.2.2
Extreme Heat Mitigation Approaches and Recommendations
Education and training may save lives during the next heat wave. It is important to let
people, especially people at risk (elderly, disabled, etc.) know that there are things they
can do to reduce their risk for heat related problems such as heatstroke, heat exhaustion,
heat syncope, heat cramps, and heat rash.
•
•
•
•
Cool off with water (baths, showers, wet towels, ice)
Stay out of direct sunlight and avoid strenuous activity
Wear light colored, lightweight , and loose fitting clothes.
Drink often. Do not drink alcohol or beverages with salt. Do not drink beverages
with caffeine.
98
•
•
•
•
•
•
•
Eat small meals more often. Avoid foods that are high in protein.
Keep shades drawn, blinds closed, but windows slightly opened if you do not
have air conditioning.
Weather-strip doors and windows.
Consider keeping storm windows up all year. They insulate just as well against
the hot as they do the cold.
Keep lights turned down or off.
Avoid using the oven.
Only two hours a day in an air conditioned facilities can significantly reduce the
risk of heat related illnesses.
For elderly, low income, and disabled persons, there are sources of assistance available in
events of extreme heat.
•
Project Share – This is a DSS program funded by Progress Energy for heating and
cooling. Applicants must be Progress Energy residential customers. This
program provides funds for the purchase of fans. This program operates in 44
counties, including Carteret.
•
Crises Intervention Program – North Carolina receives money for emergency
cooling assistance from the US Department of Health and Human Services
through the Low Income Home Energy Assistance Program. These funds may be
used to buy fans, pay cooling bills, air conditioners, or provide other assistance
for low-income people. The NC Division of Social Services (DSS) says that
benefits cannot exceed $200 per application and $400 per fiscal year. If clients
are not a CP&L customer and cannot be covered under Project Share, they would
be covered under this program.
•
Operation Fan-Heat Relief – Elderly residents of North Carolina can obtain fans
from the N.C. Division of Aging. This program provides electric fans through
local offices on aging and in some local departments of social services. Funds are
donated by Progress Energy, Duke Power Company, North Carolina Power, and
Valassis Communications, Inc. Older persons may contact their local aging
organizations, the county social services department, or their Area Agency on
Aging to find out about participation in the fan program.
To obtain more information about these programs, Carteret County Department of Social
Services can be contacted at: (252) 728-3181
6.3
Earthquakes
6.3.1
Mitigation Approaches and Recommendations
A severe earthquake is very unlikely to impact Carteret County. Building code measures
implemented by Carteret County to reduce the risks from hurricanes, tornadoes, etc. will
99
serve as earthquake mitigation. Otherwise, since the risk of a severe earthquake in
Carteret County is so low, no actions are recommended at this time.
The largest earthquake ever recorded with an epicenter in North Carolina occurred on
February 21, 1916. The epicenter was near Waynesvillle. This earthquake only caused
chimney and window damage.
6.4
Wildfires
6.4.1
Mitigation Approaches and Recommendations
Wildfire mitigation tends to be complex. To be effective, a number of participants need
to be involved including property owners in the Wildland-Urban Interface, agencies,
organizations, and individuals.
• It is important to monitor high rates of construction along and within forests
(Urban/Wildland interface). Wildfire mitigation can reduce the risk in these
types of areas by limiting the number of structures or increasing their fire
resistance.
• It is important to use the National Fire Information Reporting System
(NFIRS) to collect and report wildfire information. Kimberly Dorman of the
Office of State Fire Marshall/Fire and Rescue Commission says that North
Carolina started using this system in 1999. This system allows uniform and
standard reporting for fire incidents throughout the United States. The NFIRS
has two objectives.
1. Help state and local governments develop fire reporting and analysis
capability for their own use.
2. Obtain data that can be used to evaluate incidents from across the
nation. This information can be used to develop better fire combating
strategies.
The US Fire Administration has used NFIRS to collect information on fire,
through the voluntary participation of states, departments, and agencies, since
1974. This is authorized by The Federal Fire Prevention and Control Act of
1974 (P.L. 93-498). NFIRS contains fire incident and casualty forms, a
hazardous materials form, a coding structure for data processing purposes,
manual, computer software and procedures, and documentation for utilizing
the system.
More information can be found on NFIRS at:
http://www.nfirs.fema.gov/
• Carteret County should monitor daily fire risk within the county through any
number of weather reporting agencies. Fire forecasts for North Carolina are
available through the Internet or weather radios.
100
•
The North Carolina Division of Forest Resources suggests that improved
subdivision planning can help prevent threats from wildfires. Houses that are
close together, poorly constructed, or difficult to reach with fire fighting
equipment are at risk for fire damage. More stringent planning regulations
can specify:
1. Larger yards with more grass.
2. More spaces between houses.
3. Wider roads so large fire-fighting equipment have easy access.
4. Restrictions on building material that burns easily such as cedar
shingles and wood siding.
5. Mandate more water resources (i.e. fire hydrants).
6. Installation of spark arrestors on chimneys
• Use GIS as a vulnerability assessment tool.
• An educational program should be designed that focuses on wildfire risk and
exposure as well as measures to prevent fires. Mitigation measures before,
during and after the fire should be outlined. People who should be targeted
for this information include planners, builders, homeowners, firefighters, local
officials, landscapers, architects, foresters, insurance companies, and the
media. Property owners in particular should be informed that the following
measures would reduce their risk:
1.
2.
3.
4.
5.
6.
Stack firewood at least 100 feet away and uphill from a home.
Clear combustible material within 20 feet of a home.
Mow grass regularly.
Rake leaves, dead limbs and twigs. Clear all flammable vegetation.
Remove leaves and rubbish from under structures.
Thin a 15-foot space between tree crowns, and remove limbs
within 15 feet of the ground.
7. Remove vines from the walls of the home.
8. Remove dead branches that extend over the roof.
9. Prune tree branches and shrubs within 15 feet of a stovepipe or
chimney outlet.
10. Ask the power company to clear branches from power lines.
11. If there is any open burning to be done, build the fires away from
trees and vegetation.
12. Have a way to quickly extinguish a fire.
13. Never leave a fire unintended.
If a wildfire is actually occurring, occupants of a house should do the
following:
1. Remove combustible material from around the house (i.e. lawn
furniture)
2. Remove flammable window treatments
3. Close gas valves and turn off pilot lights.
101
4. Put sprinklers on roof.
5. Close all windows and doors.
6. Humans are unable to outrun a wildfire. People who find
themselves in this situation should seek out a water source, and if
none are available, search for shelter in a cleared area or among a
bed of rocks. Lie flat and cover body with soil or wet clothes, and
breath air through a wet cloth.
6.5
Floods
6.5.1
Mitigation Approaches and Recommendations
6.5.1.1 Measures to Prevent Flood Losses by Managing New Development
6.5.1.1.1 Floodplain Regulation
• Landuse ordinances control future development in known flood hazard
areas by preventing structures from obstructing flow in the floodway
and requiring that construction permitted in other areas be protected
from flood losses;
• Building codes establish specifications for construction in flood hazard
areas to minimize flood damages.
6.5.1.1.2 Development and Redevelopment Policies
Other public actions can guide development to allow for the flood hazard and the natural
characteristics of the floodplain. They may be applied through the design and location of
utilities and services to serve low-risk or flood-free areas, through policies of open space
acquisition and easement, and through redevelopment or permanent evacuation. Another
essential policy is to require adequate detention of stormwater runoff in developing areas
to prevent flooding from becoming worse.
6.5.1.1.3 Information and Education
Flood hazard information is vital if informed floodplain management decisions are to be
made by officials, professional staffs, and affected individuals. It is important that all
stakeholders understand the nature of the flood risk in terms of flood levels, hazards, and
impacts in a specific area.
6.5.1.2 Measures to Reduce the Exposure of Existing Development to Flood Risk
6.5.1.2.1 Disaster Preparedness
Preparedness plans and programs provide for pre-disaster mitigation, warning, and
emergency operations. The success of such planning depends largely on the degree to
which individuals and local governments protect themselves by taking appropriate hazard
mitigation measures to reduce their exposure to flood risk.
102
6.5.1.2.2 Information and Relocation
These activities may be part of redevelopment or urban renewal or a separate project that
provides for removal of structures and facilities, particularly from the floodway and
perilous flood-prone areas, leaving them free for non-damaging open space uses. After a
flood, the acquisition of heavily damaged structures is often practical.
6.5.1.2.3 Flood Forecasting, Warning Systems, and Emergency Plans
Flood forecasting systems provide information on the time of occurrence and magnitude
of flooding expected along rivers and streams. Flood warnings can be issued and
emergency protective measures undertaken by individuals and the community. The
effectiveness of such systems depends both on the time available and on having a local
emergency action plan in place before a flood occurs.
6.5.1.2.4 Flood Insurance
Under the National Flood Insurance Program, flood insurance is available to property
owners and renters in communities that participate in the program. To become and
remain eligible to participate, communities must agree to enact and enforce floodplain
management regulations consistent with the program requirements. Because of the
benefits to its citizens, and the effects of non-participation, most flood-prone localities are
participating in the program. Carteret County has participated in the National Flood
Insurance Program since 1980.
6.5.1.2.5 Information and Education
Flood hazard information may be used in addressing existing flood problems. It is vital in
the formulation of alternative flood protective measures by both government and
individual decision-makers. Information on properties subject to flood risk and
probabilities of various levels of loss can help translate the hazard into terms that
stimulate appropriate local action.
6.5.1.2.6 Individual Protective Measures
A number of measures can be employed by individuals to keep flood damage within
acceptable limits. Those most frequently used include:
•
•
•
•
Raising structures in place to above expected flood levels;
Constructing small walls or levees around structures;
Modifying structures to keep water out; and
Relocating some contents above expected flood levels to reduce the effects of
water entering the building.
Such measures can be undertaken during repair, remodeling, or expansion of existing
structures.
6.5.1.2.7 Structural Measures to Contain or Confine Flood Waters
103
Given that structural projects of this nature tend to displace, often with negative impacts
downstream, rather than mitigate, the NCDEM discourages their use. Nevertheless, in
the absence of other feasible alternatives, acceptable flood protection structures include:
•
•
•
Flood water detention dams and reservoirs levees,
Channel alterations that confine more water to the channel and accelerate flood
flows,
On-site detention measures that provide temporary storage of stormwater runoff.
6.5.1.2.8 Measures to Preserve/Restore the Natural Resources and Functions of
Floodplains
Retaining the natural resources and functions of floodplains can not only help
communities to reduce the frequency and consequences of flooding, but also minimize
storm-water management and non-point pollution problems, and for less money than
building facilities to correct them. Measures for preserving floodplain resources and
functions involve preventing the alteration of the natural and beneficial resources or
maintaining the floodplain environment as close to its natural state as possible. The
measures that can be employed include:
• Floodplain regulations to control or prohibit development and redevelopment
policies focused on resource protection.
• Information and education for both community and individual decision-makers.
• Review of community programs to identify opportunities for floodplain
preservation.
Measures for restoring diminished or destroyed resources/functions provide for reestablishment of an environment in which these functions can again operate. Measures
that can be used involve improving the natural condition of areas or restoring them to
their previous natural state. These could include:
• Land reuse policies focused on resource restoration.
• Information and education on needs and processes.
• Review of community programs to identify opportunities for floodplain
restoration.
6.5.1.3 Floodplain Mapping Improvement
The National Flood Insurance Act of 1968 required identification, publication, and
updating of all special flood hazard areas in the U.S. Since then, approximately 100,000
flood map panels have been produced for nearly 19,000 communities. These maps are
one of the best tools for proactive flood hazard mitigation, preparation for floods, and
recovery from flooding. However, because of the dynamic nature of flood hazards as
well as increasing user demands, the maps must be properly maintained and updated to
fully accomplish their intended purpose.
Unfortunately, the flood map inventory is deteriorating. Approximately 50% of the maps
are at least 10 years old, and 75% are 5 years or older. Further, approximately 25% of the
flood map panels are in need of flood data updates, and another 40% have adequate flood
data but require updates on their non-engineering reference features vital to making
104
accurate flood risk determinations. In addition, the map inventory needs to be completely
converted to digital format to serve customer needs and demands.
In response to the deterioration of the map inventory, evolving engineering, mapping
technologies and increased user demands, a plan for modernizing the maps in North
Carolina was developed.
The State of North Carolina, through the Federal Emergency Management Agency's
(FEMA's) Cooperating Technical Partners initiative is the nation's first Cooperating
Technical State (CTS). As a CTS, the State will assume primary ownership and
responsibility of the FIRMs for all North Carolina communities. Under the CTS
agreement, the State of North Carolina, FEMA, and numerous other Federal, State, and
local agencies have partnered to conduct a statewide mapping program. The program
involves producing updated, digital Flood Insurance Rate Map (FIRM) panels for the
entire State of North Carolina, implementing a state-of-the-art, dynamic Information
Technology (IT) infrastructure, and developing a real-time flood forecasting and
inundation mapping system. There are several reasons why the State initiated this
program, including:
• Accurate floodplain maps are needed to understand flood risk;
• Knowing the flood risk helps communities manage development to dramatically
reduce long-term flood losses;
• Most flood maps in the State are outdated and lack sufficient detail to effectively
assess and manage flood i
risk, as demonstrated by Hurricane Floyd; and
• FEMA's mapping budget is finite and many counties and communities have
indicated that they do not have the resources to take on the responsibility of
generating new flood maps.
The statewide effort will occur in three phases. Phase I started in 2000, and focuses on
the six river basins in eastern North Carolina, which were most deeply impacted by
Hurricane Floyd. Phase II will encompass five river basins in the middle of the State, and
Phase III will address the six remaining basins in the western part of the State. The goal is
to have the entire State remapped by the end of 2007. Carteret County adopted the new
countywide FIRM panels on July 16, 2003.
6.5.1.4 Public Outreach
The NCDEM and its partners intended to pursue a comprehensive strategy to disseminate
information to targeted audiences across the state. The North Carolina Disaster Recovery
Task Force, convened by the Governor, after Hurricane Fran, was the impetus for this
effort, with several recommendations to address public outreach, including:
•
•
•
Developing more intensive and focused outreach efforts to help local
governments and non-profit organizations identify their needs and design
customized funding assistance programs to address those needs.
Designing and implementing a statewide community disaster education program
that can be implemented effectively at the local level.
Instituting a multi-media disaster communication planning program.
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•
•
Incorporating hazards and risk assessment data into existing GIS and making this
data available to local governments.
Targeting specific groups for disaster preparedness and hazard mitigation
information, including farmers, city and county managers, elected officials,
floodplain managers, insurance industry officials, special needs groups, and
business and industry entities.
For other flood mitigation actions, please see section 6.7 (Hurricanes).
What follows are recommendations that can assist in boosting the County’s CRS rating.
The analysis goes a step further by including a discussion of the advantages of using GIS
to reach the County’s mitigation goals.
6.5.1.5 National Flood Insurance Program – Community Rating System
The NFIP's Community Rating System (CRS) recognizes community efforts beyond
minimum standards by reducing flood insurance premiums for a community's property
owners. Discount on insurance premiums range from 5% to 45%. The following table
illustrates the NFIP insurance premium discounts. This is based on the credit point
scoring system.
Property Owners NFIP Insurance Premium Discount
Rate Class
Discount
Credit Points Required
1
2
3
4
5
6
7
8
9
10
45%
40%
35%
30%
25%
20%
15%
10%
5%
0%
4500+
4000 - 4499
3500 - 3999
3000 -3499
2500 - 2999
2000 - 2499
1500 - 1999
1000 - 1499
500 - 999
0 - 499
Example:
Random County, NC pays total flood insurance premiums of $3.79 million
Community Rating = 9 = (5% Savings) $189 thousand
Community Rating = 1 = (45% Savings) $1.7 million
The CRS activities are organized under four main categories: Public Information,
Mapping and Regulation, Flood Damage Reduction, and Flood Preparedness.
Public Information (Series 300)
This series credits programs that advise people about the flood hazard, flood insurance,
and ways to reduce flood damage. These activities also provide data needed by insurance
agents for accurate flood insurance rating. They generally serve all members of the
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community and work toward all three goals of the CRS. Activities listed under public
information include:
• Elevation Certificates
• Map Information
• Outreach Projects
• Hazard Disclosure
• Flood Protection Library
• Flood Protection Assistance
Mapping and Regulations (Series 400)
This series credits programs that provide increased protection to new development. These
activities include mapping areas not shown on the FIRM, preserving open space,
enforcing higher regulatory standards, and managing stormwater. The credit is increased
for growing communities. These activities work toward the first and second goals of the
CRS, damage reduction and accurate insurance rating.
Flood Damage Reduction (Series 500)
This series credits programs for areas in which existing development is at risk. Credit is
provided for a comprehensive floodplain management plan, relocating or retrofitting
floodprone structures, and maintaining drainage systems. These activities work toward
the first goal of the CRS, damage reduction.
Flood Preparedness (Series 600)
This series credits flood warning, levee safety, and dam safety programs. These activities
work toward the first and third goals of the CRS, damage reduction and hazard
awareness.
Communities that regulate new development in their floodplains may join the NFIP. In
return, the NFIP provides federally backed flood insurance for properties in participating
communities. The program is administered by FEMA. To date, over 18,500
communities participate in the NFIP. There are over 4 million policies in effect and over
$8 billion has been paid in flood insurance claims since 1978. Initiated in 1990, the CRS
reduces flood insurance premiums to reflect what a community does above and beyond
the NFIP's minimum standards for floodplain regulation. The objective of the CRS is to
reward insured residents for what their communities are doing, as well as provide an
incentive for new flood protection activities.
The Federal Emergency Management Agency (FEMA) would like all communities
across the nation to be disaster resistant. Disasters have been declared in nearly every
state. The costs are staggering. It takes years for a community to recover from such
disasters.
Communities need to organize resources, develop partnerships, identify
hazards and community vulnerability, prioritize hazard risk reduction actions, mitigate
and build disaster resistant communities.
Carteret County has begun the process of prioritizing hazard risk and reduction actions
through the North Carolina Hazard Mitigation Planning Initiative. Prolonged rainfall and
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the effects of hurricanes bring enough water out of streams and rivers and the ocean to
cause damage. Flooded roads are a major inconvenience and severely impact citizens as
well as emergency services. Hazard mitigation practices must be implemented if the
County is to grow in a responsible manner.
The NFIP and CRS, along with the N.C. Hazard Mitigation Planning Initiative, and other
federal guidelines, initiatives, or regulations have necessitated the use of advanced
technology. GIS with its sophisticated analytical tools for improved decision-making and
mapping capabilities offers Carteret County solutions that could save time, lives, and
money. The following is a list of the NFIP CRS activities that would improve flood
management operations.
The table below identifies what Carteret County can do to get credits/discounts. GIS
opportunities for each category have been documented.
The CRS Flood Preparedness Credit
Series Number
600
610 Flood Warning
Program
620 Levee Safety
630 Dam Safety
TOTAL 600 SERIES
Flood Preparedness
Maximum
Points
Average
Points
Provide early flood
warnings to the public
Have a detailed flood
response plan keyed to
flood crest predictions
Maintain levees not
otherwise credited in the
flood insurance rating
system that provide some
flood protection
All communities with a
dam safety program
receive some credit
200
120
200
120
120
64
1,220
438
8,145
1,555
Notes:
Geographic
Information Systems
GIS mapping and
analytical capabilities
will assist with this
task
GIS will help map the
location of levee
features.
The Total CRS Credit
Total Series Credit
The following table documents the recommended uses of GIS for the NFIP CRS and
storm water management activities. Nine GIS applications have been identified.
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GIS Recommendations - NFIP CRS & Storm Water Management
1
2
3
4
5
6
7
8
9
Recommended GIS Application
Use GIS to Track and Issue Elevation Certificates. A GIS application would
allow the County to identify the flood vulnerability of a parcel and organize and
track existing, non-existing elevation certificates.
Utilize State-of-the-art GIS internet and intranet capabilities to make flood
data available in a user friendly manner.
Use GIS for Hazard Identification. This will allow the County to determine
areas that will be affected by flooding and other related issues. It will allow all
parcels to be identified that are repeatedly flooded.
Use GIS for Hazard Disclosure. This will allow the residents of the County to be
better informed about flooding and flood prone areas. This could possible involve
the Internet or developing a CD with parcel and flood information.
A GIS should be used to store, analyze, and map all newly acquired field
inventory data i.e., storm water, water, and sewer. Any GPS initiatives will
involve database creation, storage and graphic depiction. GIS should be the
relational database engine for all external databases created within the County.
Note: There is a compelling reason to inventory all storm water infrastructure.
"the unseen storm water management facilities (i.e. the piping systems which have
been installed in our subdivisions) have recently become an increasing concern.
The most common type of pipe used in many of the subdivisions constructed
during the 1970's and 1980s was corrugated metal pipe. This pipe typically has a
design life expectancy of 20 years; therefor many of the storm water piping
systems in these subdivisions will need to be repaired or replaced over the next
few years". Storm water management, the NFIP, and the CRS are inter-dependant
and need to be addressed together. GIS offers that capability.
Use GIS to produce better maps and map products. Thematic mapping
illustrating hazard prone areas will go a long way in improving the County's CRS.
GIS should be used as the mechanism to store all flood zone delineation (i.e.
Q3, DFIRM )and all future engineering studies. Any hydrologic and hydraulic
engineering studies that produce improved floodway delineation should be stored
in the GIS. This data together with other important digital descriptions (i.e.,
cadastral) will improve the decision making process.
GIS should be used to link all external relational databases that relate to
flooding of hazard mitigation.
Use the tools afforded by GIS to improve the County's community rating. Most
of the CRS activities could be improved with the application of GIS technology.
It is recommended that the County work closely with the CRS/ISO specialist to
determine how best to use GIS for improving the CRS discount.
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6.5.1.5.1 Recommendations for Elevating CRS Scores
Elevation Certificates
According to the CRS manual, one of the greatest impediments to selling flood insurance
is the difficulty of obtaining accurate flood insurance rating zone and building elevation
data. For this reason, the NFIP requires communities to maintain records of the elevations
of new buildings. All of the technical data an insurance agent needs should be recorded
on the Federal Emergency Management Agency's (FEMA's) elevation certificate.
Repetitive Loss
The Federal Emergency Management Agency (FEMA) produces a list of repetitive loss
properties within each National Flood Insurance Program (NFIP) community. It is the
responsibility of Carteret County to review this list for accuracy, correct addresses,
determine whether the properties are actually in the community's corporate limits, and
whether the insured buildings have been removed, retrofitted, or otherwise protected
from the cause of the repetitive flooding. In addition, repetitive flooding accounts for
approximately 33% of all flood insurance claims payments. For this reason, it is
recommended that the County identify and describe its repetitive loss problem areas and
initiate an outreach project to those areas.
Acquisition and Relocation
According to the North Carolina DEM, the most effective way to protect a building from
flood damages is to remove it from the floodplain. The most common method of doing
this is for a government agency to acquire the property and demolish the building or
move it to high ground. A less frequently used approach is for the owner to relocate it to
high ground, either on the same lot or to a different one. The CRS provides credit for this
activity as long as an insurable building is removed from the path of flooding and the
community can document that the property will stay vacant. The credit is based on the
number of buildings cleared as a portion of the total number of buildings in the
community's Special Flood Hazard Area (SFHA).
The maximum point allotment for this activity is 3200. In order to receive credit under
the CRS for a current acquisition program, Carteret should submit the following
documents to the CRS:
a. A map showing the parcels where buildings have been demolished or relocated
since the effective date of the FIRM and the total number of such buildings.
b. Documentation that shows that each site credited under this activity can also
qualify for credit as preserved open space in Activity 420.
c. Calculations showing the number of buildings in the SFHA.
d. Real estate or permit records that document the date of removal of each building.
e. Documentation showing that floodplain regulations are in effect in the area outside
the SFHA.
Retrofitting
Many buildings can be retrofitted to protect them from flood damage by elevating above
flood levels, constructing small protective barriers, and wet and dry floodproofing.
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However, it must be noted that under the CRS rules, replacing a pre-FIRM building with
a new building that meets post-FIRM standards is not retrofitting. In addition, elevating a
substantially damaged or substantially improved residential building is a minimum
requirement of the NFIP. Retrofitting is different from other approaches because the
building site itself remains subject to flooding; it is the building that is modified to
prevent or minimize flood damage.
The maximum point allotment for this activity is 2800. The following is a list of
activities that may be classified as floodproofing:
• Elevating the building so that floodwaters do not enter or reach any damageable
portions of it,
• Constructing barriers between the building and floodwaters,
• Dry floodproofing to make the building walls and floor watertight so water does
not enter (NFIP regulations do not permit the use of dry floodproofing in Coastal
High Hazard Areas (V Zones). In coastal floodplains, it is recommended that dry
flood proofing only be used where the stillwater depth is no more than 2 feet
above grade during the base flood. Where the stillwater depth is 2 feet, the wave
crest elevation will be approximately 1 foot above the stillwater elevation and
wave breaking and overtopping will reach even higher. To protect a building
from this, 4 feet of flood proofing is recommended.
• Wet floodproofing to modify the structure and relocate the contents so that when
floodwaters enter the building there is little or no damage, and
• Preventing basement flooding from sewer backup or sump pump failure.
Public Outreach
Just notifying people that they are exposed to a hazard can help motivate them to
purchase flood insurance or protect their properties. Public outreach includes advising
people of hazards, the availability of flood insurance, and/or mitigation methods.
Research has also shown that a properly run local information program is more effective
than national advertising or publicity campaigns. Outreach differs from other types of
public information in that it reaches out to people, rather than a service that responds to
inquiries. To have a successful outreach program, Carteret County may do one or more of
the following:
• Send written information to all properties in the community through a newsletter,
utility bill, telephone book, tax bill, or other document that is sent to all
properties.
• Send a notice directed to properties in hazard areas. The notice must clearly
explain that the recipient's property is in or near an area subject to hazards.
• Conduct other outreach projects, such as a "flood awareness week" or flyers
inserted in local newspapers, that will reach some of the population; or
• Conduct other outreach projects pursuant to a locally prepared public information
program strategy.
Outreach projects directed towards the entire community, floodplain properties and other
additional properties are worth a combined maximum of 250 points. In general, they
must present each of the ten topics at least once a year to at least 90% of the properties in
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the community. Generally, according to the CRS manual, a distribution to all taxpayers,
water customers, or property owners is considered 100% distribution. A notice to a
building owner is sufficient for notifying all the tenants of that building. A commercial
newspaper can only be counted if the community can document that it reaches 90% of the
properties in the community.
In order to implement outreach plans, a public information outreach strategy team needs
to be established that includes representatives of agencies and organizations active in
floodplain management and public information. At a minimum it must consist of three
people, including:
(1) Someone familiar with the community's floodplain management program, and
(2) At least one representative from outside the community’s government.
Hazard Disclosure
Most prospective buyers do not take the time (or know how) to investigate whether a
property is subject to a hazard. In many cases a property may not be near a stream or
shoreline, past flooding may have been minor, or there may be no history of flooding
since the area was developed. As a result, many people are caught by surprise when their
properties are flooded. One of the best times to advise someone of a flood hazard is at the
time they are considering the purchase of property. In order to receive credit under this
activity, Carteret County should take steps to ensure that prospective floodplain
occupants are informed about the flood hazard and the flood insurance purchase
requirement. There are a number of ways this can be accomplished, including:
•
•
•
•
•
•
•
•
Requiring all sellers to disclose in order to cover those cases where a real estate
agent is not involved.
Requiring real estate agents and sellers to advise potential purchasers whether "to
the best of their knowledge and belief" the property has ever been damages.
Requiring landlords to advise potential renters about the hazards.
Requiring final recorded subdivision plats to display the hazard areas.
Requiring individual lot surveys to show the hazard areas.
Requiring titles or deed records to show zoning or building permit conditions
related to floodplain or drainage regulations, such as a notice about the substantial
improvement or substantial damage requirement for floodplain properties.
Requiring signs posted in subdivisions to advise visitors of the hazards.
Requiring deeds to show the lot or building elevation in relation to sea level and
the base or historical flood elevation.
Hazard Reduction Library
The community library is an obvious place for residents to seek information on hazards
and protection from hazards. For this reason, the Carteret County public libraries should
maintain documents about flood insurance, flood protection, floodplain management, and
natural and beneficial functions of floodplains. Carteret County should establish a
hazard reduction library. The publications must be kept and distributed by the public
library. The publications do not need to be kept in each library building if there are
several branches of the local library system. In general, the library should contain
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documents discussing hazard mitigation and they should be entered into the library's card
catalog or similar system that allows patrons to find publications related to flooding and
flood protection. The library would ideally also contain documents keyed to local or
state conditions.
Flood Protection Assistance
Floodplain residents are more likely to undertake activities to reduce the flood hazard to
their property if reliable information is available locally. Therefore, it is beneficial to
provide technical advice to interested property owners and publicize the services
available. To do this successfully, a qualified person must be willing and able to provide
information on the flood hazard to contractors and on flood protection measures to
inquirers. Ideally, the person providing the advice and assistance on retrofitting
techniques should have graduated from the Emergency Management Institute course on
retrofitting and the availability of this service should be publicized at least annually.
The following are the types of technical assistance Carteret County may consider:
a. Site-specific flood and hazard-related data, such as floor elevations, historical data
on natural disasters in the neighborhood, or similar information so inquirers can
relate the hazard threat to their properties.
b. Names of contractors and consultants knowledgeable or experienced in retrofitting
techniques and construction.
c. Material on how to select a qualified contractor and on what recourse a person has
if they are dissatisfied with a contractor's performance.
d. Making site visits to review flooding, drainage, and sewer problems and providing
one-on-one advice to the property owner.
e. Advice and assistance on retrofitting techniques.
Additional Flood Data
Regulation of new development depends on good mapping and related hazard data. Most
communities in the National Flood Insurance Program (NFIP) have a Flood Insurance
Rate Map (FIRM). Most FIRMs have detailed data for at least some of the communities'
flood hazard areas. However, many communities still have flood problem areas where
detailed data were not provided by FIA with the FIRM. As a result, new development is
often less protected from damage. Therefore it becomes necessary to develop maps and
flood data in areas where FEMA did not provide such data. When updating maps,
Carteret County should begin by developing base flood elevations and other data in areas
not mapped as SFHA (i.e., X Zones) or mapped with approximate methods (i.e.,
unnumbered AO or VE Zones).
Open Space
One of the best ways to prevent flood damage is to keep floodprone areas free from
development. In addition to the flood protection benefits, preserving open space can
greatly enhance the natural and beneficial functions that floodplains serve. Preservation
of open space can be achieved by any of the following:
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•
•
•
•
•
Keeping the land publicly owned (e.g., a park or golf course), by keeping it as a
private preserve (e.g., hunting club lands), or by regulating development so that
there will be no new buildings or filling on the land.
Arranging for deeds for the parcels preserved as open space, which have
restrictions that prevent future owners from developing them.
Keeping currently undeveloped parcels preserved in an undeveloped natural state,
protecting natural and beneficial floodplain functions.
Restoring previously developed parcels have been to a natural state, or d.
Keeping other special hazard areas preserved as open space.
Areas designated for open space should be permanently preserved as open space when
possible.
Flood Data Maintenance
Outdated mapping hinders good floodplain management. A Flood Insurance Rate Map
(FIRM) can and should be frequently updated to account for study revisions, site-by-site
analyses, better ground elevation data, annexations, and incorporation of new hazard
data. To keep a FIRM updated at minimal cost, the Federal Emergency Management
Agency (FEMA) publishes "Letters of Map Revision." However, these do not provide
local officials and other map users with a meaningful picture of the floodplain. For these
reasons, one or more of the following may be useful:
•
•
•
•
Putting National Flood Insurance Program (NFIP) FIRM and Flood Boundary and
Floodway Map delineations on a digitized mapping system; or
Maintaining flood hazard data on computerized parcel records.
Adding and/or maintaining elevation reference marks; and
Overlaying the community's floodplain mapping (including the FIRM) on the
zoning map, the assessor's map, or other map used regularly by community staff.
Stormwater Management
One of the greatest problems of floodplain management in urbanizing areas is the
increase in peak flow caused by watershed development. As forests, fields and farms are
covered by impermeable surfaces, such as streets, rooftops and parking lots, more rain
runs off at a faster rate. A great deal of damage from local drainage problems can be
avoided by regulating new developments to minimize their impact on surface water
drainage and runoff.
Stormwater management efforts should include:
a. Regulating developments on a case-by-case basis to ensure that the peak flow of
stormwater runoff from each site will not exceed the predevelopment runoff.
b. Regulating developments according to a stormwater management master plan.
c. Requiring all new buildings (not just those in floodplains) to be protected from
local drainage problems.
d. Developing regulations to minimize erosion from land disturbed due to
construction or farming.
e. Developing regulations that improve the quality of stormwater runoff.
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Flood Warning Program
With sufficient warning, residents can take protective measures such as moving property
and/or people out of harm's way. When a hazard threat recognition system is combined
with an emergency response plan that addresses a community's problems, a great deal of
damage can be prevented. The following should be considered:
•
•
•
•
disseminating a warning to the general public,
carrying out appropriate flood response tasks, and
coordinating the flood response plan with operators of critical facilities.
implementation of specific tasks to reduce or prevent threats to health, safety, and
property.
6.5.1.5.2 Other Recommendations
Planned Deployment
It is accepted that debris removal work is necessary to eliminate immediate threats to life,
health and safety, or eliminate immediate threats to improved property, or be performed
to ensure the economic recovery of the community and provide a benefit for the
community at large. However, to arrange for debris removal requires time and resources.
It is well documented that in the moments or days after a disaster, emergency managers
often do not have the time or resources to deal with the issues. Therefore, rather than
making arrangements after the event, the County employs a method of planned
deployment. That is, in cases of high winds, it is expected that power will be lost and
roads blocked due to fallen trees, etc., so it makes sense to make contract arrangements
for debris removal be made prior to disaster impact where possible.
Special Needs Populations
It has become common knowledge that some suffer more severely from the devastation
of natural disasters than others. Research has shown that minorities and the poor in
general, are disproportionately located in poor quality housing segregated into lowvalued neighborhoods. That is, (1) minority households are more likely to live in
conditions subject to greater damage from natural hazards; and (2) these same groups
will take longer to recover because they do not have the capacity or the access to
resources that other groups possess. Having this established, an obvious general area of
concern with regard to mitigation planning is the impact of disasters on populations like
these. In light of this, Carteret County should develop procedures to address the needs of
special populations before and after a disaster. Such activities might include:
•
•
•
Developing a special needs registry
Retrofitting shelters
Transportation arrangements
In general, Carteret County should update and continue to enforce the policies already in
place. Also, where floodplain ordinances do not exist within the municipalities of the
County, the County should work with those municipalities to develop those regulations.
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6.6
Winter Storms/Freezes
6.6.1
Mitigation Approaches and Recommendations
Experience has shown that no area can fully prepare for severe winter storms. However,
typical measures include:
• Enhanced building codes.
• Planned deployment of resources.
• Underground utility lines for critical facilities.
• Increased tree trimming along utilities.
• Homeowners should winterize their house, barn, shed or any other structure that
may provide shelter for family, neighbors, livestock or equipment. Install storm
shutters, doors and windows; clear rain gutters; repair roof leaks; and check the
structural ability of the roof to sustain unusually heavy weight from the
accumulation of snow--or water, if drains on flat roofs do not work.
Four-wheel drive vehicles should be available to emergency personnel.
6.7
Hurricanes
6.7.1
Mitigation Approaches and Recommendations
Hurricanes are notorious for causing substantial damage, injuries and death.
important to implement mitigation methods to reduce the costs.
It is
6.7.1.2 Education
Educating the public and county employees about hurricane preparedness has
successively reduced the loss of life in recent years. Therefore, it is very important that
awareness and public education continue to educate new residents and employees of
Carteret County, who may not be familiar with the risks and mitigation efforts associated
with hurricanes.
6.7.1.3 Evacuation
Development of evacuation routes in conjunction with evacuations of high-risk areas has
reduced the loss of life.
6.7.1.4 Buyouts
Post mitigation measures include buyout programs, relocation, elevation of structures,
improved open-space preservation, and land-use planning within high-risk areas.
6.7.1.5 Strengthening of Buildings and Facilities
Strict building codes are the most effective way of mitigating the effect of high winds and
floods associated with hurricanes. It is important to develop, adopt, and enforce strict
building codes and standards. Codes should be applied to existing structures as property
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owners seek to expand or remodel their homes or businesses. All new construction in
hazard prone areas should be built to standards that will allow the structure to survive the
hazard it will be subjected to. If this cannot be done, then the construction should not be
allowed.
Special consideration should be given to manufactured housing as it is more susceptible
to damage then site built homes, particularly those home manufactured before HUD
standards were revised in 1993. Manufactured housing makes up most of the low-income
housing stock in North Carolina. Subsequently, owners typically cannot afford to pay the
costs for strengthening their home against natural disasters. They will often live in
particularly dangerous areas (i.e. floodplain) because land prices are cheaper. Many
times, these types of houses are home to minorities. These factors must all be considered
when working on a planning process.
North Carolina law considers manufactured homes significantly different from other
types of homes so different requirements may be placed on them. Typical types of
manufactured home regulations include licensing, inspection, taxation, and zoning.
Zoning is the most important measure for implementing manufactured home regulation in
regard to mitigating disasters. Carteret County is one of three counties in the State that
requires exposure D rated manufactured homes that are located within 1500 feet of a
coastline (Atlantic Ocean) (ref. NC Manufactured Home Code para. 3.4.3).
There are several structural measures that would significantly increase a buildings
resistance to hurricane force winds that can be done without raising the cost of
construction by more then a few percent. These measures include:
• Using larger then usual timbers
• Use bolts instead of nails
• Strengthen wood frames with cross cables.
• Reinforce roof braces
• Anchor rafters with screws.
• Install diagonal bracing on metal buildings.
• Use building tie downs and foundation bolts to secure roofs to buildings and
buildings to foundations.
Buildings constructed prior to stricter building codes are susceptible to hurricanes.
However, it is possible to retrofit these structures to decrease risk to hurricanes:
• Storm shutters can be installed over all exposed windows and glass surfaces to
prevent them from shattering. This is one of the most easiest and effective ways
to protect a home.
• Hurricane straps can be installed to more securely attach a structure’s roof to its
walls and foundation.
• Truss bracing is important for houses having gabled roofs.
• Double garage doors can be retrofitted with bracing, heavier hinges, stronger
center and end supports, stronger tracks.
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Tall buildings and manufactured housing has been shown to be more vulnerable to
hurricane force winds then site built structures. These types of structures should be
securely anchored to their foundations. Mobile homes should be tied down to their pads
to prevent significant damage.
The following design and construction guidelines are extremely helpful in flood
mitigation. However, just because there are mitigation techniques available for a flood,
this should not be seen as a justification for locating new construction in a floodplain.
• Floodproofing – wet or dry. Dry floodproofing will protect all areas below
the anticipated flood level. Wet floodproofing intentionally allows
floodwaters to enter a building. This will reduce the pressure exerted by deep
water. Dry floodproofing is used to make a building’s walls and floor
watertight so water does not enter (NFIP regulations do not permit the use of
dry floodproofing in Coastal High Hazard Areas [V Zones]). In coastal
floodplains, it is recommended that dry floodproofing only be used where the
stillwater depth is no more than 2 feet above grade during the base flood.
Where the stillwater depth is 2 feet, the wave crest elevation will be
approximately 1 foot above the stillwater elevation and wave breaking and
overtopping will reach even higher. To protect a building from this, 4 feet of
floodproofing is recommended.
• Elevation – This raises a structure above flood level. It is also possible to
elevate interior components of a structure, such as electrical and heating
systems. Communities should consider raising bridges and other low-lying
structures.
• Secure fuel tanks and supply lines.
• Install backflow valves. These block drain pipes temporarily and prevent the
reverse flow of sewage into a house.
• Communities should flood proof manholes and lift stations, elevate sewage
access ports, and install backflow prevention valves.
• Relocation – this involves moving a building or facility to a less hazard-prone
area. This is a costly and inconvenient option. Since many residents in flood
prone areas are often poor, Carteret County should provide support for anyone
it requires or encourages to relocate.
Incentives should be used to encourage landowners and developers to integrate mitigation
into the process of building new developments or retrofitting existing homes. These
incentives can be in the form of tax abatements or low interest loans.
6.7.1.6 Debris
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Debris removal work must be necessary to eliminate immediate threats to life, health and
safety. Removal work must also proceed to eliminate immediate threats to improved
property and to ensure the economic recovery of the community. Debris in a road can
block emergency vehicles, in a stream it can cause a flood, it can stop up sewer and
stormwater pipes, in a forest it increases a chance of a fire, and it provides breeding
ground for pests and vermin.
It is accepted that debris removal work is necessary to eliminate immediate threats to life,
health, and safety, or eliminate immediate threats to improved property, or be performed
to ensure the economic recovery of community and provide a benefit for the community
at large. However, to arrange for debris removal requires time and resources. It is well
documented that in the moments or days after a disaster, emergency managers often do
not have the time or resources to deal with the issues. Therefore, rather than making
arrangements after the event, the County should employ a method of planned
deployment.
Under the Robert T. Stafford Disaster Relief and Emergency Assistance Act, the
declaration of a major disaster activates federal and state aid for debris removal as one
part of the "Public Assistance" program administered by the State. Federal and state aid
is available for removal of storm-generated debris on improved public property. Some
debris removal from private property may be eligible if it presents a danger to the public
of fire, insect infestation or some other safety or health hazard. Demolition of buildings
beyond repair may also be eligible, including private buildings if they pose a public
safety hazard. Removal of standing dead or dying trees and trimming of trees are not
normally eligible, nor is hand labor for picking up small branches. No debris removal is
eligible for assistance on forested or agricultural properties.
To apply for federal assistance for debris removal, local governments first submit a
Notice of Interest to state officials. That notice triggers a visit by state and federal
inspectors. The inspectors' report is reviewed to determine which costs can be reimbursed
under the Stafford Act rules. Eligible costs are 75% covered by federal aid. The state
and/or local governments provide the other 25%. Once federal funds are obligated, state
officials disperse and track the assistance. In general, it is recommended that contract
arrangements for debris removal be made prior to disaster impact where possible.
6.7.2. Coastal Building Approaches and Recommendations
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Residences and buildings, particularly those on the coast, are susceptible to damage from
flooding and wind during hurricanes. In 1996, Hurricane Fran’s devastation gave an
opportunity for experts to determine what kind of construction was vulnerable and why.
After Hurricane Fran, the Mitigation Directorate of the Federal Emergency Management
Agency deployed a Building Performance Assessment Team (BPAT) to the coast to
assess the damage. This team was composed of FEMA officials, engineers, state
representatives, NFIP officials, insurance officials, and specialists in coast construction
and shoreline erosion. Their mission was to assess the performance of the buildings on
the coast and make recommendations for improving building performance in the future.
Their recommendations were as follows:
6.7.2.1 Piling Embedment for Structural Support
On the coast, it is of utmost importance that foundations be designed to survive erosion
and scour. The following three documents offer guidelines to designers of coastal
foundations:
• The ASCE standard ASCE 7-95, Minimum Design Loads Building and Other
Structures.
• The ASCE standard Flood Resistant Design and Construction Practices – 1997
• Coastal Construction Manual – FEMA.
• Technical Bulletin No. 5, Free of Obstruction Requirements for Buildings
Located in Coastal High Hazard Areas – FEMA.
The BPAT team found that in coastal areas of North Carolina where the ground
elevations were at or below 11 feet m.s.l., the current North Carolina Building Code is
adequate in providing structures protection from hurricanes. However, in areas where the
grade is greater than 11 feet m.s.l., following the current North Carolina Building Code
means that the bottoms of pilings will be above –5 m.s.l. This depth may not be
sufficient for structures built on or directly behind frontal dunes where extensive erosion
and scour can cause the loss of the entire dune or remove enough to cause the piling
support to become inadequate. It would be better if piling depth was required to be –5
feet m.s.l. or 16 feet below grade, whichever is greater.
Of course, stricter building codes will be useless without enforcement. It is of utmost
importance that there is adequate inspection and code enforcement to ensure that all
structure pilings meet current and future Code requirements.
6.7.2.2 Piling Embedment for Decks, Porches, and Roof Overhangs
On oceanfront properties, the foundation requirements for these types of structures should
always be as stringent as those for the building itself. If this is not done, collapse of these
structures can damage the building and create debris. Exceptions can be created for
stairways and narrow walkways required for building access. In places where erosion and
scour is expected, embedment of vertical foundation members should be based on a depth
related m.s.l. and not a depth below existing grade. On landward buildings, the vertical
foundation supports of decks, porches, and overhangs should also meet the same
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requirements applied to the main building support system. In areas that experience scour
but no erosion, embedment of these foundation members may be based on a depth related
to existing grade. The continued use of an embedment depth of 8 feet is recommended.
6.7.2.3 Proper Elevation of Coastal Buildings
Structures that are built in a V zone must be elevated so the lowest horizontal structural
member of the lowest floor is at or above the base flood elevation, and the area below this
level is free of all obstructions. In A zones, a structures lowest floor should be elevated
to or above the BFE, but the areas below this may contain obstructions. There are no
elevation requirements for zone X. However, it was found by the BPAT team in 1996
that homes in the A,B,C, and X zone that were elevated above the BFE resulted in lower
damages than would have occurred if the lowest floor of these structures had been
elevated to the BFE in A zones, and not elevated in B,C, and X zones. Therefore, barrier
islands may want to adopt stricter standards in areas of known high coastal hazards,
regardless of whether they are or are not currently classified as V zones. Besides the
obvious reduction of risk to the buildings integrity, owners can qualify for a lower flood
insurance rate.
6.7.2.4 Cross-Bracing Below Elevated Buildings
Pilings should always be designed so that they can withstand a hurricane without cross
bracing. This can be done by increasing the building footprints by using unroofed decks,
use larger and longer pilings, and reducing piling spacing. If cross bracing is necessary,
it should be minimized as much as possible, especially where it would be perpendicular
to velocity flow, debris, and wave action. Whatever the orientation, the cross bracing
should be designed to withstand wind and flood loads.
6.7.2.5 Solid Perimeter Masonry Foundation Walls Supported on a Continuous
Footing
These types of foundations should be limited. They are extremely susceptible to scour.
If this type of foundation is desired, it should not be approved until an engineering
analysis of potential scour is completed by a professional engineer. Engineering
solutions may include backfilling the foundation excavation with soil that is able to resist
scour, and installing the footing below the expected depth of the scour. Solid perimeter
walls should never be used in oceanfront areas.
6.7.2.6 Mobile Home and RV Foundations
These types of homes are usually supported on dry stack masonry foundations. There are
steps that can be taken to provide protection from foundation collapse from scour, anchor
strap corrosion, and anchor strap pullout. To protect the foundation from scour, either the
scour must be controlled, or the foundation should be extended to below the expected
scour depth. A non-scourable soil can be used under the footprint of the home, or a
geotextile fabric can be installed beneath the home. However, if this is done, it must be
keyed-in around the edges so it will not the scour underneath. Also, a deep foundation
can be developed using an auger to drill below the depth of the expected scour by at least
1 foot. The holes should be at least 1 foot in diameter. The foundation can be either
wood posts or cast-in-place concrete.
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It should be understood that metal straps used to tie down mobile homes and RVs can
become loose and corroded over time. These should be checked periodically. Otherwise,
loose or corroded straps exposed to hurricanes can fail, causing damage to the foundation
or home.
Loose straps should be tightened according to the manufacturers’
specifications, and corroded straps should be replaced.
It is important to use the proper size and type of anchor to reduce pullout due to soil
saturation. The anchors should either be buried below to a depth below the saturated soil,
buried in soil that can resist pull out, or be designed to work in saturated soil. If anchors
are buried in coastal areas where there are loose to medium dense sands and other
granular soils, anchors should be at least 4 feet long and ¾ inch in diameter. The helical
plates should be at least 6 inches in diameter. Always follow manufacturers’
specifications.
To protect mobile homes and their foundations from storm surge, all Special Flood
Hazard Areas, including A zones should require elevation of these homes so that the
bottom of the lowest horizontal structural member of the lowest floor is at or above the
BFE. The bottoms of the chassis I-beams would then be at or above the BFE.
6.7.2.7 Breakaway Walls Below Elevated Buildings
Breakaway walls are designed to break away from the structure when flood forces are
present. Therefore, it is important to make sure that these walls can work as designed.
1. Exterior sheathing should not extend over the vertical foundation members. This
also applies to wire mesh used in stucco systems. There should be an obvious
joint between the panels and vertical foundation members.
2. The breakaway walls should be secured so that they can withstand wind forces,
but break away under coastal flood forces.
3. Breakaway walls should not be installed seaward of cross bracing. This can
create excessive lateral loads on the cross bracing. An alternative is to install
latticework, or move cross bracing away from breakaway walls into an interior
area.
6.7.2.8 Below Building Concrete Slabs
When a slab on grade is created below an elevated building, it is important to ensure that
it will not damage the foundation if acted on by flood forces. The following items will
reduce or eliminated damages:
1. Slabs that are susceptible to erosion and scour should be no thicker then 4 inches.
2. Contraction joints should be used to ensure frangibility of the slabs. These joints
should be cut into the surface of the slab from piling to piling in both directions
across the entire slab. See the plan view below.
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Contraction Joint
Piling
3. Wire mesh should not be used in the slab. This will prevent it from breaking
apart.
4. Where there is granular soil that is subject to erosion and scour, slabs should
never be connected to vertical foundation members. This can threaten the
stability of the foundation system of elevated buildings.
5. Concrete grade beams and slabs-on-grade should never be cast monolithically in
areas that are subject to erosion and scour.
6.7.12.9 On Site Utility Systems
Platforms that support air conditioners and heat pumps need to withstand flood forces.
This can be done by elevation of the platform to or above the BFE. This can be done by
supporting the platform partially or fully on pilings, but ideally, the platform should be
cantilevered from an elevated floor diaphragm. If the air conditioner or heat pump is
elevated on a platform, the vertical members should meet the same requirements as the
main building support system.
Utility panels should never be placed where they can be damaged by a breakaway wall,
and also, they should never be placed where they can interfere with a breakaway wall
performing its function. The same holds true for utility lines. If it is necessary to extend
a utility line thorough a wall panel, a utility blockout should be built into the wall. All
utilities such as service connections and sewer and water rises should all be placed on the
landward side of vertical foundation members. Septic tanks should also be installed as
far landward as possible.
For a more comprehensive discussion on flood mitigation, please see section 6.8.
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6.8 Severe Storms/Tornadoes
6.8.1 Severe Storm Mitigation Approaches and Recommendations
The literature defines no mitigation actions specifically for most severe storms hazards
since mitigation measures for tornadoes, hailstorms, hurricanes and flooding are expected
to achieve a reduction in the damage caused by severe storms. (Please see the sections on
hurricanes and flooding for wind and flood mitigation steps). However, lightning is
unique and there are defined mitigation measures to reduce damages.
Lightning can cause severe injury and even death. To get a rough estimate of where a
thunderstorm is in relation to you, use the ‘flash to bang’ method. Start counting the
seconds after seeing a lightning bolt to the next thunder. Thunder travels about one mile
in every five seconds. Therefore, if you see a lightning bolt and count 15 seconds before
you hear the thunder, the storm is about 3 miles away. This is an indication to take
shelter immediately. Successive lightning strikes are often 2 to 3 miles apart.
The best shelter from a severe storm is in a permanent building. Vehicles with metal
roofs are safe, but be careful not to touch any metal services within the car. It is best to
stay away from windows. Also, do not talk on the phone, take a bath, or stand near
electrical appliances. In rare cases, if lightning strikes near a building, it can get into
telephone wires, electric wires, or plumbing. If you cannot get into shelter, bend into a
crouched position until there is a break in the storm. Move as far away, at least 7 feet if
possible, from any tall isolated structures (trees, houses, telephone booths, etc). Standing
next to objects like these makes you susceptible to secondary discharges.
Structures should be outfitted with lightning rods. Many people think that lightning rods
will attract lightning, but this is not true. However, if a lightning bolt were heading
towards a structure, instead of damaging the building, the lighting would be dissipated by
the lightning rod. Surge protectors are also important. This is especially true for
emergency personnel’s computers, communication equipment, etc. If a lighting bolt were
to strike nearby, it can cause a surge that can quickly destroy important equipment.
6.8.2 Hail Mitigation Approaches and Recommendations
According to Mr. Stan Changnon, a widely published author of scientific papers and an
expert on natural disaster events at the University of Illinois, that unfortunately, there are
not many hail mitigation techniques available. Agriculturally, the best defense against
hail is to distribute crops to different areas on the farm so a single localized storm will not
damage the entire crop. There is also insurance available to farmers. As far as protection
of structures, there are hail resistant materials. Tax incentives or low interest loans can be
offered to builders to use such materials. To qualify as hail resistant roofs, roof covering
materials must undergo impact resistance tests developed by Underwriters Laboratories
(UL). The shingles must be packaged with information that shows the brand name, the
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year of manufacture, the fact they passed UL Standard 2218 and their classification
number.
6.8.3 Tornado Mitigation and Recommendations
Mitigation opportunities for tornado winds are similar to mitigation measures for other
wind hazards. However, the damage associated with violent tornadoes due to extreme
wind speeds and pressures may be difficult to mitigate in a cost-effective manner.
Attention to the type of structure used in tornado-prone areas may yield benefits,
particularly by avoiding highly susceptible manufactured or mobile homes. The greatest
structural protection is from quality construction and reinforcement of walls, floors, and
ceilings. Proper anchoring of walls to foundations and roofs to walls is essential for a
building to withstand certain wind speeds. Incorporating wind-resistant designs and
strengthening of masonry in local building codes and ordinances will help reduce the
impact of tornadoes in the future.
Recommendations for reducing life safety risks associated with tornado events are
identified in NOAA’s Natural Disaster Reports, including:
• Improve radio and wire communications with the media and local
emergency managers.
• Equip gathering places with weather radios with an audible alert of
warning and require testing of response and preparedness plans.
• Continue awareness and preparedness efforts in schools.
• Make special efforts to inform mobile homes residents about the impacts
of the tornado hazard as well as locations of safe shelters in times of
emergency.
People should be made aware that injuries and death can be prevented by seeking shelter
in the basement, or in a small interior room of a building such as a closet, small
bathroom, or hallway. A living room or large bedroom has more of a risk for collapse.
Carteret County uses the above methods and the Emergency Alert System (EAS) to
notify the public of an impending storm
6.9 Storm Surge
6.9.1 Mitigation Approaches and Recommendations
Many lives have been saved through public awareness during pending emergencies.
Since new residents in Carteret County may be unaware of coastal hazards, public
awareness/education has been implemented on an ongoing basis.
Regional warning and evacuation efforts have also reduced the toll on life from storm
surge. These efforts have served two purposes. First, in an education capacity, the
seriousness of an evacuation communicates the dangers of storm surge. Two, it
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physically removes people from the danger. The media is invaluable in communicating
the dangers associated with tropical occurrences and storm surge.
To protect property, it has been proved that strict building codes that mitigate high wind
and flooding have been very successful. Strict building codes must be issued in
conjunction with enforcement. Coastal setback and regulatory programs also decrease
development in high risk areas on the coast.
After the fact, when structures have already been damaged by storm surge, mitigation
efforts can include elevation, buyout programs, relocation, improved open-space
preservation, and land use planning.
There are shoreline protection measures that can be used to combat storm surge and
storm-induced waves. These measures can also serve the dual purpose of reducing the
effects of normal coastal erosion. Therefore, a description of these protection measures
can be found in the next section on coastal erosion.
The Coastal Area Management Act (CAMA) strictly regulates these types of measures
and the North Carolina Division of Coastal Management should be contacted prior to any
consideration of construction.
6.10 Coastal Erosion
6.10.1 Mitigation Approaches and Recommendations
Development on beachfront property has raised a number of new problems. Construction
destroys the best defense against natural erosion, dunes. Many coastal states now have
laws and regulations that prevent the destruction of the dunes. Manmade seawalls and
jetties can slow the loss of sand from a local spot but these structures generally worsen
erosion in the surrounding areas and upset nature's balance between erosion and
deposition. North Carolina does not allow seawalls on oceanfront shorelines.
The coast may experience natural recovery over a long period of time. However, this
may not be sufficient when there are people and structures that need protection. There
are a number of mitigation measures that can be implemented to speed the process. Most
commonly, beach nourishment and dune restoration can be done to restore the shore
protection. However, these methods are costly.
If no measures are taken to decrease or slow erosion, it would be good practice to
relocate infrastructure such as utility lines, sewer lines, water mains, and roadways in
severely eroded areas.
6.10.1.1 Beach Nourishment
A beach that is stable or growing provides natural protection to structures located behind
it. Beaches that tend to lose sand through erosion or starvation does not provide this
same protection to the structures behind it. Artificially increasing the amount of sand,
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adjusting the shoreline profile, replenishing lost sand, littoral transport processes, and
supplying sediment to downdrift shorelines all define beach nourishment. However,
large-scale beach nourishment tends to be expensive, often at $1 to $5 million per mile of
application. Most nourishment activities have a lifespan of 2 – 10 years, depending on
storm activity. If renourishment sand is taken from neighboring offshore banks, the
project may unintentionally worsen the hazard risk. These offshore banks often provide
the beach protection. The effectiveness of beach renourishment is dependent on a
number of factors:
• Type of imported sand (the sand should closely resemble original beach material)
• Slope of beach (new slope should match old slope)
• Strength of cross-shore currents
• Storm activity
Beach fill is often used in conjunction with construction of a groin field. This technique
fills compartments quickly. Therefore, it may reduce the erosive damage that groin fields
can cause to downstream beaches. Nourishing a groin field can help provide a beach
when the natural littoral drift cannot be effectively trapped.
The North Carolina Division of Coastal Management should be contacted to obtain
required CAMA permits when doing a beach renourishment project. Permits will not be
issued if high erosion rates require frequent maintenance of the beach. Permits will also
not be issued if dredge material used for renourishment does not match the existing beach
in grain size. This material must be handled properly and allowed to dry before it is
applied.
6.10.1.2. Sand Scraping (Beach Bulldozing)
This process can be used to reinforce a beach without having to add new sand. This
involves scraping the top foot of sand from the beach with bulldozers and depositing it
above the high tide line. This technique is less expensive then beach nourishment, but
the results are only temporary. This technique is questionable in its ability to mitigate
hazards and is regulated by CAMA.
6.10.1.3. Dredging
This deepens a channel by removing sediment. This is often used to maintain the
navigability of channels and waterways. Sometimes this is used to provide sand for
beach renourishment. This type of activity must be ongoing to maintain waterways.
Disposing of the sediment may be expensive. If material is dredged from offshore banks
for the purpose of beach renourishment, hazards may increase in the future. The waves
in the area may increase in intensity and erosive power. Offshore banks also help with
accretion. Dredging removes sediment from this sand ‘economy’. CAMA requires that,
where appropriate, sandy dredge be used for renourishment of starving beaches.
6.10.1.4. Seawalls and Bulkheads
Seawalls are vertical coastal walls that protect buildings against shoreline erosion. They
may or may not protect against storm waves. Seawalls are not allowed on oceanfront
shorelines. Bulkheads are wood or steel vertical walls set back from the shoreline.
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Bulkheads retain loose fill and sediment behind them. These types of walls are expensive
and strictly regulated by CAMA. Seawalls can cause steepening of the beach profile and
increase erosion in front of and to the sides of the wall. These types of walls require
continual maintenance. Since bulkhead’s purpose is to retain material, they do not
provide good protection from storms or flood events.
If these types of walls are used, they should be constructed of strong materials that can
withstand the power of waves. They should be tall enough to prevent overtopping, and
deep enough to prevent undermining. Curves in the design may help to dissipate waves.
Bulkheads should be located above the mean high water level and landward of
marshland. They cannot impede public access to the shore. These walls are strictly
regulated by CAMA and their regulations state a preference for the use of riprap
(revetments), gabions, and vegetation rather then seawalls. These measures are less
expensive and more effective at reducing erosion impacts.
6.10.1.5. Revetments
These are formed by placing hardened materials on top of the existing shore or riverbank
slope. These are intended to provide protection from high tides, surges, and floods.
Revetments disperse wave action and backwash and reduce shoreline erosion. These
types of structures absorb waves. The advantage to this is that the energy of the waves is
not deflected to unprotected areas. Revetments also give little interference to the
movement of sand along the shore. Revetments can be made of any number of materials
including boulders, gabions, or pre-cast armor units.
6.10.1.6. Offshore Breakwaters
These are small structures, floating or fixed, that are placed parallel to the shore in
shallow water. These structures, usually placed one to three hundred feet out, diffuse the
power of incoming waves. Material that is carried by these waves is trapped behind the
structures, thus providing beach nourishment. However, this can result in less sand in
downdrift areas. Therefore, erosion may have been decreased in the area with the
offshore breakwaters, but increased in other areas. These types of structures can also
pose a hazard to boaters and swimmers.
6.10.1.7. Groins
These walls are placed perpendicular to the beach. These help to capture material
drifting along the shoreline. These walls are typically constructed out of timber,
concrete, metal sheet piling or rock. The sand that is trapped and retained can fill the
beach compartments between sets of groins. These are frequently designed to provide a
wider beach and reduce the frequency of beach nourishment. However, this means that
beaches downstream can be starved of their sand. This can increase a shorelines overall
erosion problem. CAMA strictly regulates constructions of groins. They require that in
general, groins not reach more than 25 feet waterward from the mean high water level.
They also require that they be spaced at least 100 feet apart and not be taller than 1 foot
above mean high water level. The material should be large enough to resist being
dislodged and becoming debris.
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6.10.1.8. Jetties
Jetties are similar to groins in that they are walls built perpendicular to the coast, often in
pairs. However, the purpose of jetties is to keep sediment from accumulating in these
passages, providing safe channels for boats. The problem with this type of wall is that it
restricts the movement of sediment traveling parallel to the shore. This can cause
starvation of downdrift beaches. They can also cause erosion of sand from the beach.
6.10.1.9. Geotextile Sand Tube
These are large tubes constructed of synthetic materials that are filled with wet sand.
They can be placed one of two ways.
• Installed perpendicular to the shoreline. The purpose of this is to trap sand.
• Set parallel on the backshore. This will protect beachfront properties.
These types of tubes can cause problems. When they are set up perpendicular to the
shore, they slow or interrupt the drift of sand along the shore. Tubes that are installed
parallel to the shoreline can reflect waves and intensify currents, thus steepening the
beach profile and inducing erosion on the sides of the tube. If these tubes are to be used,
they should be buried to reduce their impact on sand drift.
6.10.1.10. Construction and Stabilization of Sand Dunes
Dunes are an integral part of the ocean environment and help protect the lives and
property of coastal residents. They provide protection from overwash flooding during
storms and help to minimize scouring when water retreats to the sea. They also provide
protection against high winds. Over time, dunes can help to replenish beach with sands.
Mankind is a main contributor to dune formation by pumping, constructing, fencing sand
areas and establishing and maintaining vegetation. Vegetation on the dune will help to
stabilize the dune and give protection from being washed out. Shoreline plants need to be
protected from human intervention. Sandbags can be used as a temporary measure to
protect structures on an eroding oceanfront shoreline. CAMA regulates thje use of
sandbags.
To provide protection, dunes need to be wide. Following Hurricane Hugo, a study of
dune fields in South Carolina found that the minimum effective field size was 100 feet
wide and 10 foot high. It is important that dunes be continuous. Gaps in dunes are
vulnerable to storm overwash. New dunes can be difficult to integrate with existing
beachfront development. Dunes also tend to migrate as part of its natural life cycle.
They should not be anchored as this will result in ‘seawalls’ that will narrow beaches and
cause erosion.
The most effective way of creating sand dunes is to interrupt airflow with sand fences
made of porous materials. This encourages sand accumulation. Vegetation can also be
used for this technique. Interior dunes should be built by depositing sand (that matches
the existing sand) manually. Dunes can be stabilized through grading or rapid
construction. Dunes can also be anchored with chemicals or vegetation.
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Shorefront dunes are protected by state legislation. CAMA requires that new
development not cause the ‘significant’ removal or relation of sand or vegetation from
the primary and frontal dunes. They also require that small structures be located
landward of the toe of the frontal dune or the crest of the primary dune, whichever is
further from the water.
6.10.1.11. Roadway Realignment
Roadway realignment re-orients near-shore roads so they are parallel rather then
perpendicular to the shore. Perpendicular roads tend to channel storm surge and wind
inland. However, realigning roads can lead to various issues such as changing local
traffic patterns, restricting access to the shore, and restricting access to private property.
This can lead to constitutional ‘takings’ challenges. This may be mitigated by providing
alternative routes of access for property owners.
6.11 Hazardous Materials
6.11.1 Mitigation Approaches and Recommendations
There are two kinds of mitigation approaches in dealing with hazardous materials:
Physical and social adjustments.
Social adjustments include:
• Spreading economic loss through a number of avenues including insurance,
taxation, and monetary grants.
• Integrate a system to notify key players throughout the public and private
sectors to a dangerous situation.
• Have a plan to quickly initiate emergency preparedness and evacuation to
save lives and reduce property loss.
• Restrict land use and establish minimum standards to avoid hazardous sites
and conditions.
• Increase public awareness of hazardous material sites within Carteret County
(See list of sites in section 3.3.1.2.) Also increase public awareness among
the people who live along HAZMAT transportation routes (highway and rail).
In particular, people who live in the vicinity of I-95 and routes 40 and 70
should be aware of the dangers.
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Physical adjustments include:
• Identify and avoid sites where hazards may be likely to occur (See Section
3.3.1.2 to view a list of CERCLIS and NC Inactive Hazardous Waste Sites
within Carteret County. These sites should be mapped using Carteret
County’s GIS.
• Have increased building restrictions in building HAZMAT facilities. These
sites should be well able to withstand a natural disaster.
• Preventing or altering the characteristics of the hazard.
FEMA has developed a program to help states and counties deal with HAZMAT releases.
Under the Hazardous Materials Program, FEMA offers technical and financial assistance
to state and local governments. They also offer help to private companies in developing,
implementing, and evaluating HAZMAT emergency preparedness programs.
Several federal agencies offer training, publications, technical assistance, and guidance to
state and local governments for planning and responding to HAZMAT releases. These
agencies include the United States Environmental Protection Agency (USEPA), the
United States Department of Transportation (USDOT) and FEMA.
A web site that offers more information then you ever wanted to know about HAZMAT
can be found at: http://hazmat.dot.gov/
VII. Plan Adoption
In order to become an enforceable policy, a hazard mitigation plan must be adopted by
the Board of Commissioners. Planning officials will not have nearly the impact with the
governing body as an official document detailing the policies regarding mitigation.
Carteret County should adopt the plan officially through the standard legal processes for
adoption of regulations and policy, including public notice and hearings. In order to
receive credit under the CRS, the hazard mitigation plan must be an official plan of the
community.
VIII. Implementation and Responsibilities
The County is responsible for monitoring and evaluating implementation of the hazard
mitigation plan. After the plan has been completed and distributed, the Coordinator is
responsible for stimulating, coordinating, and managing the implementation of the plan.
Development of a comprehensive mitigation program is a continuing process and
depends on the active involvement of the County in implementing, monitoring,
evaluating, and updating the plan. It is important to realize that this ongoing process does
not end once the plan has been written.
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The real challenge of hazard mitigation planning involves converting the plans into
action. The intent of implementing mitigation is to intervene in the traditional reactive
processes of response and recovery. The proactive nature of mitigation planning leads to
the successful reduction of hazard vulnerability.
The County’s commitment to implementing the plan and accomplishing mitigation
actions can also impact future mitigation funding. Currently, in the State of North
Carolina, any community applying for hazard mitigation money must have a hazard
mitigation plan. In addition, the state has the authority to deny future funds if mitigation
commitments are not fulfilled.
8.1 Responsibilities
8.1.1 Role of the Coordinator
Implementation involves coordination by the Coordinator with the State NFIP/Mitigation
office and local government officials whose agencies have been designated as having the
responsibility for implementing specific recommendations. The floodplain administrator
can support implementation activities by assisting the lead agencies in identifying,
coordinating, and obtaining the necessary technical and financial resources required for
each goal. This may include conducting meetings that relate to the goals of the
recommendation; holding training sessions; scheduling visits with the Governor's Office,
Legislative Committees, state and federal agencies, private businesses, community
groups, and the media; developing correspondence; and making telephone calls. The
purpose of these efforts should be to stimulate and support mitigation activities and to
solidify official commitment and public involvement.
8.1.2 Role of the State and Local Team Members
There are several activities that local officials can pursue that contribute towards
implementing plan recommendations. They can educate colleagues within their
respective agencies as to how the recommendations they have responsibility in were
formulated and why they are important. Ongoing programs and activities that either
support or conflict with mitigation objectives can be identified. Officials should also
coordinate technical and financial resources available from their agencies and generate
any additional activities that will help accomplish implementation of recommendations.
8.1.3 Role of the State
The floodplain administrator may request technical assistance and support from the state
and federal agencies, through the State Hazard Mitigation Officer, to help the state carry
out its hazard mitigation responsibilities. The state may be asked to participate in many
of the activities mentioned above. The state’s involvement and the leverage it can
provide may help the County achieve its mitigation objectives in a timelier manner.
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8.2 Implementation Strategies
8.2.1 Post Disaster Meetings
A series of regularly scheduled post-disaster meetings or training sessions with local
officials will maintain an emphasis on implementing the recommendations of the
mitigation plan. If a mitigation measure involves a local community, the involvement of
the local government and its citizens is critical. In some instances, community meetings
must be held to solicit input. This is especially true when hazard mitigation requires
public support, as in the case of an acquisition or relocation project, or when hazard
mitigation activities are controversial or environmentally sensitive.
8.2.2 Integration into Work Plans
To integrate hazard mitigation activities into work plans, the coordinator should identify
the local agency and position responsible for accomplishing the specific activity and
work with the individual in that position to ensure that the issue is addressed by their
agency. Related to this, budget cycles are important so that the designated lead agency
can incorporate the cost of the work items into budget proposals prior to their review.
8.2.3 Use of Existing Programs
Potential funding sources are identified in the Fiscal Capability document. Funding is
often seen as the major obstacle in achieving mitigation objectives. It is important to
examine programs at all levels of government, and in the private sector. Cost sharing and
the creative use of existing programs must also be explored.
Some mitigation measures may require little or no funding (i.e. outreach activities).
Other activities may require time that the coordinator may not have available. Some
states have successfully used student interns from local universities or community
colleges to assist with plan implementation.
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8.2.4 Use of Media
Recommendations may be implemented promptly if the disaster is a high visibility event
or impacted a large population area and if the disaster is still receiving media coverage.
Keeping issues in front of the media can help garner support and serve as an impetus for
implementation. Media involvement can be very effective if properly coordinated with
all participants.
Media involvement begins as early in the process as possible and, depending on the size
of the disaster and the issues involved, continues indefinitely. The coordinator should
work to establish media contacts. Use of print media, TV, and radio can help bring issues
to the public's attention and increase support of mitigation activities.
Press releases can be developed to announce milestones in the planning process. These
may include completion and distribution of post-disaster team reports and the hazard
mitigation plan, formation of a team or task force, and status of critical recommendations.
The media should be provided with a copy of the plan and subsequent progress reports.
The media should also be invited to conferences in support of mitigation
recommendations. Implementation involves continued coordination and follow-up to
ensure that the plan becomes an effective working document, and to establish
comprehensive hazard mitigation
IX. Monitoring
Monitoring is an important component of the implementation process. A tracking and
reporting system is essential to monitor the progress of the recommendations. To assist
with this process, the coordinator should designate an individual from each agency to
periodically report on the status of each recommendation. This information, as well as
the annual progress report, should be shared with appropriate individuals to keep them
informed and involved in the process. The coordinator can also monitor progress through
phone calls, visits, and meetings.
Those who have implementation responsibilities can provide the coordinator with
meeting agenda, attendance sheets, correspondence, legislation, minutes of public
meetings, telephone records, and grant proposals as the basis for their report to the
coordinator.
X. Plan Review and Updates
Periodic monitoring and reporting of progress is required to ensure that Plan goals and
objectives are kept current and that local mitigation efforts are being accomplished. The
134
Carteret County Multi Jurisdictional Hazard Mitigation Plan shall be reviewed annually,
or more often as the local situation may require following a disaster declaration, to ensure
that progress is being made on achieving stated goals and objectives. The Plan will also
undergo periodic evaluation and update as required by FEMA and the State.
A. Annual Review/Progress Report
The County Manager shall direct the County Planner to take responsibility for conducting
the annual review. The annual review shall include the re-initiation of the hazard
mitigation team planning process utilized during development of the Plan. The team will
include representatives of all affected County departments, as well as the Towns of
Bogue, Cape Carteret, Cedar Point, Newport and Peletier.
The general public will be notified through a variety of media, including but not limited
to, the local newspaper, the Carteret County website, and mailed or emailed notices, of
the review process and the opportunity to comment on the Plan review.
The annual review shall ensure:
1. That the Planning Board receives an annual report and/or presentation on the
progress of Plan implementation. The report will include a status report on the
implementation of mitigation actions.
2. That the County Board of Commissioners receives an annual report and/or
presentation on the progress of Plan implementation along with a
recommendation from the Planning Board regarding on-going implementation of
the Plan.
3. The annual report will include an evaluation of the effectiveness and
appropriateness of the mitigation actions included in the Plan.
4. The annual report will recommend, as appropriate, any necessary revisions or
amendments to the Plan.
If the County Board of Commissioners determines that the recommendations warrant
amendment of the Plan, the Board may initiate an amendment through the process
described below.
B. Periodic Plan Review and Update
Periodic evaluation and revision of the Plan will help ensure that local mitigation efforts
include the latest and most effective mitigation techniques. These periodic revisions may
also be necessary to keep the Plan in compliance with Federal and State statutes and
regulations. The Plan will need to be updated to reflect changes, such as new
development in the area, implementation of mitigation efforts, revisions of the mitigation
processes, and changes in Federal and State statutes and regulations.
In the context of a Federal disaster declaration, State and local governments are allowed
to update or expand an existing plan to reflect circumstances arising out of the disaster.
135
An updated plan in this circumstance might include a re-evaluation of the hazards and the
jurisdiction’s exposure to them, a re-assessment of existing mitigation capabilities, and
new or additional mitigation recommendations.
The Plan shall be reviewed at a minimum every five (5) years to determine if there have
been any significant changes that would affect the Plan. Increased development,
increased exposure to certain hazards, the development of new mitigation capabilities or
techniques, and changes to Federal or State legislation may affect the appropriateness of
the Plan.
The plan will be updated within five (5) years and will be forwarded to NCEM and
FEMA for review and approval.
Review of the Plan
The procedure for reviewing and updating the Plan shall begin with a report prepared by
the County Planner and submitted to the Planning Board for consideration and
recommendation to the Board of Commissioners. The report shall include a summary of
progress on implementation of hazard mitigation strategies and a recommendation, as
appropriate, for any changes or amendments to the Plan.
The review shall include an evaluation of the effectiveness and appropriateness of the
Plan. Specifically, the evaluation shall involve a review of the consistency of day-to-day
land use decisions to determine if the hazard mitigation policies are being implemented.
The review shall recommend if plan amendments are warranted and if any revisions to
regulatory tools (zoning, subdivision regulation, etc.) are necessary to assist in
implementing the policies of the Plan.
If the Board of Commissioners determines that such report raises issues that warrant
modification of the Plan, or if the Planning Board recommends that issues have been
raised which warrant modification of the Plan, the Board may initiate an amendment as
delineated below, or may direct the County Manager to undertake a complete update of
the Plan.
Procedure for Amending the Plan
An amendment to the Plan shall be initiated by the Board of Commissioners either at its
own initiative or upon the recommendation of the Planning Board, the County Planner, or
any other agency who demonstrates that an amendment should be considered.
Upon initiation of a text or map amendment, the County Planner shall re-convene the
hazard mitigation planning team and notify other interested parties as described in the
Annual Review/Progress Report subsection above. The team will consider any proposed
amendment(s) which shall then be forwarded to affected parties, including, but not
limited to, County departments, municipalities within the County, and other interested
agencies such as the North Carolina Division of Emergency Management, the United
States Army Corps of Engineers, and the Federal Emergency Management Agency for a
ninety (90) day review and comment period.
136
At the end of the comment period, the proposed amendment(s) shall be forwarded along
with all review comments to the Planning Board for consideration. If no comments are
received from the reviewing department or agency within the specified review period,
such shall be noted in the report to the Planning Board.
Planning Board Review and Recommendation
The Planning Board shall review the proposed amendment(s), the report and
recommendation of the County Planner, and any comments received from other local
governments and State and Federal agencies. The Planning Board shall submit a
recommendation on the proposed amendment to the Board of Commissioners within
sixty (60) days. Failure of the Planning Board to submit a recommendation within this
time period shall constitute a favorable recommendation.
In deciding whether to recommend approval or denial of an amendment request, the
Planning Board shall consider whether or not the proposed amendment is necessary based
upon one or more of the following factors:
a) There are errors or omissions made in the identification of issues or needs
during the preparation of the original Plan;
b) New issues or needs have been identified which were not adequately
addressed in the original Plan;
c) There has been a change in projections or assumptions from those on which
the original Plan was based.
Board of Commissioners Review and Approval
Upon receiving the recommendation of the Planning Board, the Board of Commissioners
shall hold a public hearing. The Board shall review the Planning Board recommendation
(including the factors delineated above), the report and recommendation from the County
Planner, and any oral or written comments received at the public hearing. Following that
review, the Board shall take one of the following actions:
a) Adopt the proposed amendment as presented or with modifications.
b) Deny the proposed amendment.
c) Refer the amendment request back to the Planning Board for further
consideration.
d) Defer the amendment request for further consideration and/or hearing.
Incorporation into Existing Planning Mechanisms
The local government has created a process by which the requirements of this hazard
mitigation plan will be incorporated into other local plans. During the planning process
for new and updated local planning documents, such as a comprehensive plan, CAMA
land-use plan, capital improvements plan, or emergency management plan, to name a few
examples, the local planner will provide a copy of the hazard mitigation plan to each
respective advisory committee member. The local planner will recommend the advisory
137
committee members to ensure that all goals and strategies of new and updated local
planning documents are consistent with the hazard mitigation plan and will not contribute
to increased hazards in the jurisdiction.
After a period of time under CRS regulations, the County will be required to update its
existing mitigation plan. A supplemental section may need to be developed to address
new hazard mitigation needs or issues, reprioritize existing recommendations, or expand
the plan to address additional hazards.
10.1 Expanding Existing Plans
Plans may be expanded for two reasons. In the case of a disaster event, an existing
hazard mitigation plan may be expanded to address a new hazard. After a major disaster
is declared, the coordinator should examine the existing plan to determine if there are
policies, programs, and capabilities to address the hazard and reduce future vulnerability.
If necessary, the coordinator will need to expand the plan and develop recommendations
to address those issues.
In other instances, the County may expand upon their existing plan in response to a
known hazardous situation. There are available programs and funding to assist with this
effort since most local governments do not have the staff time and financial resources to
dedicate to such an effort in a non-disaster environment. The Hazard Mitigation
Assistance program can be used for this purpose. FEMA encourages the use of this
program for developing pre-disaster plans.
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XI. Appendices
Flood Control Works
Dams and Reservoirs
Dikes, Levees,
Floodwalls and Berms
Revetments
Channelization
Diversion
Drainage System
Maintenance
Vegetation
CAMA
Regulations
May Apply
X
X
X
X
X
X
Roadway Realignment
High Winds
X
X
X
X
Wildfire Mitigation
Shoreline Protection
Works
Seawalls and Bulkheads
Revetments
Offshore Breakwaters
Construction and
Stabilization of Dunes
Tornadoes
X
X
X
Beach Management
Beach Nourishment
Sand Scraping
Dredging
Earthquakes
X
X
Slope Stabilization
Sediment Trapping
Structures
Groins
Jetties
Geotextile Tubes
Vegetation
Wildfires
Hurricanes
& Coastal
Storms
Floods
Tool or
Technique
11.1 Mitigation Tools
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
139
X
X
X
Building Codes
X
X
X
X
X
CAMA
Regulations
May Apply
High Winds
Tornadoes
Earthquakes
Wildfires
Hurricanes
& Coastal
Storms
Floods
Tool or
Technique
Reducing Hazard Risk
in Buildings and
Facilities
Floodproofing
Elevating
Relocation
Windproofing
Seismic Preparedness
and Retrofitting
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
Zoning
X
X
Acquisition
X
X
Public Spending and
X
X
Other Municipal
Improvements
Burial of Utility Lines
Pruning and Planting
Planning Hazard
Resilient Communities
General Comprehensive
Plans
Hazard Mitigation and
Reconstruction Plans
Capital Facilities Plans
Floodplain
Management Plans
Beach Management
Plans
Environmental Quality
Management
Critical Area
Management
Wetlands Preservation
Dune Protection and
Shoreline Setbacks
Stormwater
Management
X
X
X
X
X
X
X
X
X
X
X
140
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
CAMA
Regulations
May Apply
X
Tornadoes
X
High Winds
Earthquakes
Hurricanes
& Coastal
Storms
X
Wildfires
Floods
Tool or
Technique
X
Infrastructure
Taxes and Incentives
Other Techniques to
Direct Development
Local Environmental
Impact Ordinances
Carrying Capacity
Moratoria
Slowing Development
Methods for
Disseminating
Information
X
X
X
X
141
11.2. Outreach Programs
142
143
144
145
146
147
148
149
150
151
11.3. List of Acronyms
152
List of Acronyms
AEC
Agency Emergency Coordinators
ARC
American Red Cross
ARES
Amateur Radio Emergency Services
BOR
Bureau of Reclamation
CAMA
Coastal Area Management Act
CFR
Code of Federal Regulations
CWA
Clean Water Act
DCM
Division of Coastal Management
DFO
Disaster Field Office
DFSG
Disaster Financial Services Group
DOC
Department of Commerce
DOE
Department of Energy
DOI
Department of the Interior
EC
Emergency Coordinator
EMS
Emergency Medical Services
EOC
Emergency Operations Center
EPA
Environmental Protection Agency
ERC
Emergency Response Coordinator
ERT
Emergency Response Team
EST
Emergency Support Team
FCO
Federal Coordinating Officer
FEMA
Federal Emergency Management Agency
153
HUD
Department of Housing and Urban Development
ICC
Interstate Commerce Commission
ICPAE
Interagency Committee on Public Affairs in Emergencies
ICS
Incident Command System
IRMS
Information Resources Management Service
MOA
Memorandum of Agreement
MOU
Memorandum of Understanding
NOAA
National Oceanic and Atmospheric Administration
NVOAD
National Voluntary Organizations Active in Disaster
NWS
National Weather Service
OEP
Office of Emergency Preparedness, U.S. Public Health Service
PIO
Public Information Officer
POC
Public Outreach Coordinator
SCO
State Coordinating Officer
SITREP
Situation Report
SLPS
State and Local Programs and Support
SOP
Standard Operating Procedure
US&R
Urban Search and Rescue
ZECP
Zone Emergency Communications Planner
154
11.4 Definitions
155
Definitions
Applicant - A community that indicates a desire to participate in a program.
Appurtenant Structure - A structure which is on the same parcel of property as the
principal structure to be insured and the use of which is incidental to the use of the
principal structure.
Area of Shallow Flooding - A designated AO, AH, AR/AO, AR/AH, or VO zone on a
community's Flood Insurance Rate Map (FIRM) with a 1 percent or greater annual
chance of flooding to an average depth of 1 to 3 feet.
Area of Special Flood-Related Erosion Hazard - The land within a community that is
most likely to be subject to severe flood-related erosion losses.
Area of Special Flood Hazard - The land in the floodplain within a community subject
to a 1 percent or greater chance of flooding in any given year. The term ``special flood
hazard area'' is synonymous in meaning with the phrase ``area of special flood hazard''
Base Flood - The flood having a one percent chance of being equaled or exceeded in any
given year.
Basement - Any area of the building having its floor sub-grade (below ground level) on
all sides.
Coordinator - The official of the community who is charged with the authority to
implement and administer the mitigation activities of that community.
Coastal high hazard area - 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. V Zone.
Community - Any state or area or political subdivision thereof, or any Indian tribe or
authorized tribal organization, has authority to adopt and enforce floodplain management
regulations for the areas within its jurisdiction.
Criteria - The comprehensive criteria for land management and use for flood-prone areas
developed under 42 U.S.C. 4102 for the purposes set forth in part 60 of this subchapter.
Critical Feature - An integral and readily identifiable part of a flood protection system,
without which the flood protection provided by the entire system would be compromised.
156
Damage Proofing - Any combination of structural and non- structural additions,
changes, or adjustments to structures which reduce or eliminate damage to real estate or
improved real property, water and sanitary facilities, structures and their contents.
Deductible - The fixed amount or percentage of any loss covered by insurance which is
borne by the insured prior to the insurer's liability.
Developed Area - An area of a community that is primarily urbanized, built-up area that
is a minimum of 20 contiguous acres, has basic urban infrastructure, including roads,
utilities, communications, and public facilities, to sustain industrial, residential, and
commercial activities.
Development - 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.
Eligible Community or Participating Community – A community for which the
Administrator has authorized the sale of flood insurance under the National Flood
Insurance Program.
Elevated Building - A non-basement building which has its lowest elevated floor raised
above ground level by foundation walls, shear walls, posts, piers, pilings, or columns.
Existing Construction - For the purposes of determining rates, structures for which the
``start of construction'' commenced before the effective date of the FIRM or before
January 1, 1975, for FIRMs effective before that date. ``Existing construction'' may also
be referred to as ``existing structures.''
Federal Agency - Any department, agency, corporation, or other entity or instrumentality
of the executive branch of the federal government.
Financial Assistance - Any form of loan, grant, guaranty, insurance, payment, rebate,
subsidy, disaster assistance loan or grant, or any other form of direct or indirect federal
assistance, other than general or special revenue sharing or formula grants made to states.
Flood or Flooding - A general and temporary condition of partial or complete inundation
of normally dry land.
Flood Elevation Determination - A determination by the Administrator of the water
surface elevations of the base flood, that is, the flood level that has a one percent or
greater chance of occurrence in any given year.
Flood Insurance Study - An examination, evaluation and determination of flood hazards
and, if appropriate, corresponding water surface elevations, or an examination, evaluation
and determination of mudslide (i.e., mudflow) and/or flood-related erosion hazards.
157
Flood Hazard Boundary Map (FHBM) - An official map of a community, issued by
the Administrator, where the boundaries of the flood, mudslide (i.e., mudflow) related
erosion areas having special hazards have been designated as Zones A, M, and/or E.
Flood insurance means the insurance coverage provided under the Program.
Flood Insurance Rate Map (FIRM) - An official map of a community, on which the
Administrator has delineated both the special hazard areas and the risk premium zones
applicable to the community.
Floodplain or Flood-Prone Area - Any land area susceptible to being inundated by
water.
Floodplain Management - The operation of an overall program of corrective and
preventive measures for reducing flood damage, including but not limited to emergency
preparedness plans, flood control works and floodplain management regulations.
Floodway - (See regulatory floodway) Floodway encroachment lines mean the lines
marking the limits of floodways on federal, state and local floodplain maps.
Lowest Floor - The lowest floor of the lowest enclosed area (including basement).
Manufactured Home - 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''.
Manufactured Home Park or Subdivision - A parcel (or contiguous parcels) of land
divided into two or more manufactured home lots for rent or sale.
Map - The Flood Hazard Boundary Map (FHBM) or the Flood Insurance Rate Map
(FIRM) for a community issued by the Agency.
New Construction - For floodplain management purposes, new construction means
structures for which the start of construction commenced on or after the effective date of
a floodplain management regulation adopted by a community and includes any
subsequent improvements to such structures.
Participating Community/Eligible community - A community in which the
Administrator has authorized the sale of flood insurance.
Policy - Standard Flood Insurance Policy.
Premium - The total premium payable by the insured for the coverage provided under
the policy.
158
Primary Frontal Dune – 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.
Project Cost - The total financial cost of mitigation (including design, land acquisition,
construction, fees, overhead, and profits), unless the Federal Insurance Administrator
determines a given “cost” not to be a part of such project cost.
Regulations - Zoning ordinances, subdivision regulations, building codes, health
regulations, special purpose ordinances (such as a floodplain ordinance, grading
ordinance and erosion control ordinance) and other applications of police power.
Regulatory Floodway - 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 a designated height.
State Coordinating Agency - The agency of the state government, or other office
designated by the Governor of the state or by state statute at the request of the
Administrator to assist in the implementation of the National Flood Insurance Program in
that state.
Structure - A walled and roofed building, including a gas or liquid storage tank that is
principally above ground, as well as a manufactured home.
Substantial Damage - 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 - 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.
Variance - A grant of relief from the terms of a floodplain management regulation.
159
11.5 Disasters by State
160
161
162
11.6 Incentives for Implementing Hazard Mitigation
163
Incentives can be a powerful tool in engaging individual businesses and
homeowners in a community based risk reduction initiative.
Incentive
Tax
Insurance
Retailer,
Manufacturer, or
Wholesaler
Financial
Community
Potential Provisions
Reduction in local government taxes for homeowner mitigation
measures. Waive taxes on building materials used to retrofit
structures.
Differentiated premiums in hazard areas based on mitigation
measures undertaken.
Waiver of deductibles on natural hazard losses.
Reduced premiums/waived deductibles for strengthened public
facilities.
Building Code Enforcement Grading System to allow homeowner
premium discounts on new construction of up to 14 percent
(community-based incentives).
Manufacturers’ rebates on products used for mitigation.
Discounts or rebates at point-of-sale. (i.e. Home Depot)
Project-specific discounts or rebates (i.e. blue Sky, Project
Impact-sponsored projects, etc.)
Building fee waivers/reductions.
Discounted construction loans for retrofitted structures.
Lower rates on retrofit loans.
Waiver of building permit fees for disaster-resistant features.
Reduction of property taxes/pardon tax increases on disasterresistant features.
164
11.7 References
American Red Cross & FEMA. 1992. Repairing Your Flooded Home.
165
Association of State Floodplain Managers & The Federal Interagency Floodplain
Management Task Force. 1996. Addressing Your communities Flood Problems: A
Guide for Elected Officials.
Berke, Philip. 1995, “Evaluating Environmental Plan Quality: The Case of Planning for
Sustainable Development in New Zealand” Journal of Environmental Planning and
Management 37 (2) 155-169.
Economic Development Administration. 1996.
EDA’s Post-Disaster Assistance
Program, After Hurricane Andrew: Final Report. U.S. Department of Commerce.
Federal Emergency Management Agency:
1987. Reducing Losses in High Risk Flood Hazard Areas: A Guidebook for Local
Officials
1990. Post-Disaster Hazard Mitigation Guidance for State and Local
Governments.
1995. Partnerships in Preparedness: A Compendium of Exemplary Practices I
Emergency Management.
1995. National Mitigation Strategy: Partnership for Building Safer Communities.
1997. Multi-Hazard Identification and Risk Assessment.
1997. Building Performance Assessment: Hurricane Fran in North Carolina.
Federal Insurance Administration1994. Mitigation of Flood and Erosion Damage to
Residential Buildings in Coastal Areas. Federal Emergency Management Agency.
Federal Interagency Floodplain Management Task Force. 1996. Protecting Floodplain
Resources: A Guidebook for Communities.
Florida Department of Community Affairs. 1997. The Local Mitigation Strategy: A
Guidebook for Florida Cities and Counties.
Godschalk, David R., Edward Kaiser, and Philip Berke. 1997. “Integrating Hazard
Mitigation and Local Land-Use Planning,” in Raymond J. Burby, ed., Cooperating with
Nature: Confronting Natural Hazards with Land-Use Planning for Sustainable
Communities. Washington, D.C.: Joseph Henry Press/National Academy Press.
Massachusetts Department of Environmental Management. 1996. Flood Hazard
Mitigation Planning: A Community Guide. Commonwealth of Massachusetts.
166
Missouri State Emergency Management Agency. The Response, Recovery and
Lessons Learned from the Missouri Floods of 1993 and 1994.
North Carolina Emergency Management:
1997. Mitigation Strategy Report. North Carolina Department of Crime Control and
Public Safety.
1997. Recommendations for Action. North Carolina Recovery Task Force
1998. Local Hazard Mitigation Planning Manual. North Carolina Department of
Crime Control and Public Safety.
1998. Tools and Techniques for Mitigating the Effects of Natural Hazards. North
Carolina Department of Crime Control and Public Safety.
1998. Keeping Natural Hazards from Becoming natural Disasters. North Carolina
Department of Crime Control and Public Safety.
1999. Hazard Mitigation Successes in the State of North Carolina. North Carolina
Department of Crime Control and Public Safety.
1999. Hazard Mitigation Successes in the State of North Carolina. North Carolina
Department of Crime Control and Public Safety.
167