2006-34COUNCIL MEMBER FANOELE INTRODUCED THE FOLLOWING RESOLUTION:
WHEREAS, a study was prepared by the Nebraska Department of Natural Resources for
the Papio - Missouri River Natural Resources District - including the City of Blair, and
WHEREAS, the purpose of the study was to prepare an all- hazards mitigation plan which
establishes the framework and also a process to implement and review the plan to reduce
hazards as conditions change, and
WHEREAS, a complete mitigation plan shows that a community is addressing its hazards
and qualifies the community for mitigation assistance from federal and state agencies.
NOW, THEREFORE, the governing body of the City Blair, Washington County, does
herewith adopt the All- Hazards Mitigation Plan, a copy of which is marked "Exhibit A" and
attached hereto and made a part thereof by reference.
PASSED AND APPROVED this 22nd day of August, 2006.
COUNCIL MEMBER ABBOTT MOVED THAT THE RESOLUTION BE ADOPTED AS
READ, WHICH SAID MOTION WAS SECONDED BY COUNCIL MEMBER BIFFAR.
UPON ROLL CALL, COUNCIL MEMBERS VOTING "AYE" STEWART, SCHEVE,
SHOTWELL, ABBOTT, FANOELE, WOLFF AND BIFFAR AND COUNCIL MEMBERS
NONE VOTING "NAY ", THE MAYOR DECLARED THE FOREGOING RESOLUTION
PASSED AND ADOPTED THIS 22ND DAY OF AUGUST, 2006.
ATTEST:
- Z7 . (72 If' 4 J
BRENDA WHEELER, CITY CLERK
(SEAL)
2006 - 34
RESOLUTION NO. - 34
CITY OF BLAIR,
AMES E. REALPH, MAYOR
STATE OF NEBRASKA )
)ss
WASHINGTON COUNTY )
BRENDA WHEELER, hereby certifies that she is the duly appointed, qualified and
acting City Clerk of the City of Blair, Nebraska, and that the above and foregoing Resolution
was duly passed and adopted at a regular meeting of the Mayor and City Council of said City
held on the 22nd day of August, 2006.
n
B A WHEELER, CITY CLERK
Blair
Dam Earth- Summer Land Winter Tornado
Failure Drought quake Flood Storm slide Storm /Wind Wildfire
Probability Low High Low High High Low High High Low
Extent Limited Limited Unknown Limited Severe Limited Severe Severe Limited
Previous No Yes No Yes Yes Yes Yes Yes No
Occurrence
Probability: Based on history, what is the likelihood this type of event will happen again?
- None, Low, Medium, or High
Extent — If this event were to happen, how extensive could the damage be?
- Zero, Limited, Severe, Full, or Unknown
Previous Occurrence: Is there an historic record of this type of hazard in the community?
The above figure shows the input provided at the initial public meeting. Due to the geographical
proximity, the following hazard types were not considered due to there being no likelihood of
occurring in Nebraska: volcanic eruptions, avalanches, hurricanes, tidal surges, and tsunamis.
In the following sections, only the hazard types which have a significant likelihood of occurring
or have a reason to potentially occur are listed. These types are: severe weather (summer and
winter), tornado, flood, drought, and dam failure. Although there is a small risk for earthquakes,
wildfires, and landslides, citizens did not rank it high enough to warrant detailed discussion in
this plan. This may change in future updates.
Disaster History
Flood
With its proximity to the Missouri River, reports of flooding at Blair date back to the late 1800s.
More detailed flood records, however, start with the Missouri River flood of April 1 -13, 1943.
At the height of this event, the River was fifteen miles wide from Decatur to Onawa, Iowa. A
flood of such a magnitude would have surely inundated low -lying properties between Blair and
the Missouri River. The flood of record for the Missouri River at the Omaha stream gage took
place on April 18, 1952, when the river crested at 23.15 feet (flood stage is 18 feet). The
Missouri River main -stem dams were completed at operational starting in 1954, which greatly
reduced the flood peaks. As a result, Blair has not seen significant flooding from the Missouri
River since the mid -50s.
Aside from the Missouri River, there are three other watercourses which could cause flooding in
or around Blair: Cameron Ditch, Unnamed Creek, and Cauble Creek.
Cameron Ditch is a combination of drainage ditch and levee which was constructed to drain the
flat topography east of the Missouri River bluff line. Since it runs north -to -south through Burt
County and Washington County, it drains a relatively large area. Cameron Ditch and Unnamed
Creek join approximately one -half of a mile upstream of where the it flows into the Missouri
River.
Unnamed Creek flows mostly west -to -east along the southern side of Blair. Its path has been
changed to flow around and old landfill before it joins with Cameron Ditch. Unnamed Creek
does not have an especially large drainage area; however, the topography in the basin is steep,
which tends to create more of a flash flood scenario.
Cauble Creek flows in a mostly south -to -north path on the western side of Blair. Cauble Creek
flows north of Highway 73 a little more than one mile before it joins Cameron Ditch. On June
14, 2001, heavy rains caused flash flooding that briefly closed Highway 75. The primary hazard
related to Cauble Creek is erosion instead of flooding. One property on Cauble Creek was
acquired with FEMA funds in 2001 because the erosion hazard was in danger of undermining the
structure. Like Unnamed Creek, the drainage basin for Cauble Creek is not large, but the
topography in the basin creates flash floods. This type of flooding may still not directly impact
structures, but does exacerbate the erosion problem.
The last time Washington County was declared a federal disaster area due to flooding was in
1999. Residences in Blair sustained primarily basement and garage flooding as a result of this
event, which dropped over 10 inches of rain overnight in north Omaha, up to north of Tekamah.
Areas that sustained the damage were in the older parts of the City which have the older sewers —
areas around the intersection of Highway 75 and 30, and from Washington Street to the south.
There are no repetitive loss properties in Blair.
Through FEMA's Flood Map Modernization program, the floodplain maps for Washington
County are slated to be reviewed starting in 2008, with new countywide floodplain maps targeted
to become effective in 2010.
Severe Weather
Blair has some of the largest car dealerships in the country, so hail storms can have the biggest
financial impact of all the severe weather related hazards. On May 22, 2004, hail up to baseball
size fell in Blair and west through south of town. The hail caused extensive damage to cars and
at least two large car dealerships were hit with over 4500 cars damaged. Houses and trees in
town were also damaged and Dana College sustained $1 million in damage in broken windows,
skylights, and vents. Two hundred windows were broken on campus. The total figure of $10
million in damage was from eastern Dodge County into Washington County, with over half of it
likely in Washington County around and in the Blair area.
Since detailed community- specific reports were made available by the National Climatic Data
Center in 1993, the highest reported wind speed was 81 mph (70 knots) on May 15, 1998. On
April 6, 2001, Dana College sustained major roof damage estimated at $75,000. On this day,
winds were sustained at 40 -50 mph, gusting to over 60 mph. On July 12, 2004, thunderstorm
wind gusts over 70 mph downed numerous trees and power lines in town, especially on the north
side of town. Damage was estimated at $100,000 as branches fell on homes and vehicles. Power
was out for 24 hours, the Cargill plant lost power for three hours, and the water plant had no
electricity for 48 hours. On May 10, 2005, a thunderstoim wind gust of 70 mph was measured at
Eagle Field, about six miles south of Blair.
Lightning killed one and injured another as they were jogging outside on June 22, 1994.
Lightning also caused $35,000 in unspecified damages on May 31, 1996.
Severe winter weather reports are given by regional data, which shows that 24 reports of winter
storms or extreme windchill for the region since 2000. The snow /ice storm of 1997 affected
Blair's urban forest, but not to the extent of Omaha and Lincoln. Multiple snow storms in
February 2004 led to concerns about access to emergency services and the drain on the City's
resources. However, all emergency services remained operational.
Tornado
No tornadoes have been found to have directly- impacted Blair. However, on May 24, 1998,
there was a report of a funnel cloud five miles west of Blair.
Dam Failure
There are no regulated dams or reservoirs upstream of the Blair city limits
Drought
There has been a sustained drought impacting the entire Missouri River basin, including the City
of Blair. The City has already noticed an increased cost for pumping water and maintenance.
Half of one intake structure at the City's water plant has been exposed due to dropping water
levels, which exposes the intake structure to freezing in addition to the drought danger. If the
drought continues and water levels continue to decline, a lower intake structure will need to be
installed at the City's water plant. This would allow the existing users of the City's water system
to continue to use and drink good water.
Likelihood of Future Hazard Events
It is certain that Blair will continue to be impacted by severe weather — perhaps as often as each
year. In these events, it should be expected to witness large hail, high winds, and intense rain in
the summer, and large snowfalls, ice, and bitter windchills in the winter. It is also anticipated
that Blair will experience flood damage from stormwater- related problems. Although it is
certainly possible, it is less likely that Blair will be impacted by a tornado.
Past Hazard Mitigation Efforts
A system of federal levees has been constructed by the Corps of Engineers on the Missouri
River. There are many local levees on the Missouri River in the Blair area; however, these
levees do not provide protection from the 100 -year or larger flood events. There are no flood
protection measures on Cauble Creek, Cauble East Tributary, or Unnamed Creek. Cameron
Ditch has levee for its entire reach, but the 100 -year flood is at much greater magnitude than the
channel capacity to the top of the levees. Floodwater will escape the channel of Cameron Ditch
well upstream of Blair.
The City of Blair participates and is in good standing in the National Flood Insurance Program.
Initial identification for Blair's Flood Hazard Boundary Map was finalized on June 21, 1974, and
was revised on April 23, 1976. This map was converted to a Flood Insurance Rate Map on July
16, 1981, and revised on July 17, 1995, which is the current effective floodplain map. Through
FEMA's Flood Map Modernization program, the floodplain maps for Washington County are
slated to be reviewed starting in 2008, with new countywide floodplain maps targeted to become
effective in 2010.
As mentioned above, a residence on Cauble Creek was acquired and demolished in 2001 because
it was in danger of having its foundation undermined by erosion.
Blair has snow routes identified, which allows more efficient use of City resources for snow
clearing and keeps access open for emergency vehicles and commercial traffic.
City personnel reports that the tornado siren system has been upgraded and improved.
Blair has a city ordinance which requires new mobile home parks to have a tornado shelter.
Vulnerability Assessment
The intent was to use the HAZUS software program to assist with the vulnerability assessment
for Blair since it would take a considerable amount of time to conduct fieldwork and drive every
street in community of this size. However, due to technical difficulties, the HAZUS analysis was
not able to be completed within the grant period. As a result, NDNR contacted the Washington
County Assessor, who was able to provide an estimate of 2,396 residences and 323 commercial
properties. Additional property classes were not available. If needed, the structural inventory
will be provided in the plan's update in five years and is identified as a mitigation action below.
For 2005, the Nebraska Department of Property Assessment and Taxation has a total valuation of
$384,213,450 for Blair. This figure is broken out into the following property classes:
Residential real property: $ 278,424,265 (72.5% of valuation)
Commercial real property: $ 80,290,955 (20.9 %)
Comm/Ind personal property: $ 12,128,984 (3.2 %)
Public Service Co personal: $ 5,940,041 (1.5 %)
Industrial real property: $ 4,496,510 (1.2 %)
Railroad real property: $ 1,826,371 (0.5 %)
Public Service Co real: $ 736,124
Railroad personal: $ 352,903
Agricultural equip personal: $ 17,297
The floodplain inventory completed by the Corps of Engineers shows that there are 61 structures
in the floodplain in the Blair corporate limits Broken out by structure type, they are 55
residences, two businesses, two apartment buildings, one school, and one church. By flood
source, 52 of the structures are located in the Unnamed Creek floodplain and nine are in the
Cauble Creek floodplain. Using an average valuation for the different structure types, it is
estimated that the total assets vulnerable to flooding in Blair is:
Residential:
Commercial:
Apaitments:
School:
Church:
TOTAL
Per structure
$ 100,000
$ 300,000
$ 220,000
$ 500,000 1
$ 350,000 1
Number
52
2
2
Value
$ 5,200,000
$ 600,000
$ 440,000
$ 500,000
$ 350,000
$ 7,090,000
Approximate
Damage Value
$ 1,352,000
$ 156,000
$ 114,400
$ 130,000
$ 91,000
$ 1,843,400
For the residential estimate, the Blair assessed value average per - structure was used, then
modified downward to reflect average floodplain structures. Commercial valuation is an
approximation based on the size and quality of the structure. The school building valuation is
based on the size and type of construction — the structures are in good shape. After the total
value of the structures was determined, the estimated damage value was determined by taking
that value and multiplying it by 20 %. Then a 30% damage to contents value was added to each
figure. Both percentages are taken from the National Flood Insurance Program depth - damage
curves for two -foot depth of flooding, which would be the maximum depth of flooding expected
for most structures in the floodplain.
Figure 1 shows the areas of new development which is most likely to occur in the next five to
ten years. The vulnerability of all development for severe winter storms, severe summer stowis,
and tornadoes is the same now and will be the same in the future. The only hazard which is able
to be modified by human behavior or activity is flooding. Since the majority of Blair is situated
outside of a regulated floodplain, it is unlikely that new development will take place in a
floodplain area. However, since Blair is in good standing in the Regular Phase of the National
Flood Insurance Program, future development which does take place in a regulated floodplain
will be completed in compliance with the City's floodplain management ordinance.
Mitigation Alternatives
1) Complete the structural inventory for the next Papio NRD plan update.
Objective 1: Have a more reliable structural inventory and to meet the federal
requirements for the vulnerability assessment
- Action 1.1: Complete the structural inventory for Blair
Funding sources and potential cost: If completed by the NDNR, then there will be no
cost.
GOALS: 1) Reduce or prevent future damage from natural hazard events,
2) Increase public safety
To address these goals, mitigation alternatives were suggested in the public meeting and
prioritized by the Blair City Council.
Prioritization
Blair prioritized the mitigation alternatives according to the "STAPLE(E)" procedure (Social
acceptability, Technical feasibility, Administrative capability of local government, Political
acceptability, Legal authority to implement, Economic justification, and Environmental
acceptability). In addition, alternatives were prioritized based on the community's goals and
planning objectives.
At its discretion, Blair may choose to not implement any of the proposed mitigation projects at
this time with the realization that future events may change this stance as well as the
prioritization of projects. Projects sponsored for implementation will follow a public process.
2) Maintain good standing in the National Flood Insurance Program
Objective 2: Continue to regulate development in floodplain areas
Funding sources and potential cost: No funding needed, no cost.
3) Reduce impacts of stormwater problems
Objective 3: Complete a drainage study
- Action 3.1: A drainage study is needed in Blair for three reasons: 1) to better delineate
floodplains and floodways, 2) to help the City map future stormwater needs, identify where
their infrastructure is weak, and identify ways to address these weaknesses, and 3) to identify
good flood mitigation projects.
Funding sources and potential cost: Papio - Missouri River NRD, Community Development
Block Grant, City — cost varies on scope, but expect $25,000 minimum
4) Reduce flood damages through non - structural mitigation methods
Objective 4: Increase public safety by reducing flood damages
- Action 4.1: Floodproof existing homes which sustain basement or other flood damage
- Action 4.2: Buyout and removal of the most flood -prone structures, with cleared area to be
retained as public open space
- Action 4.3: Flood warning system to alert citizens with assets in flood -prone areas
Funding sources and potential cost: cost varies by technique and structure to be mitigated —
funding available from FEMA's mitigation programs with the Papio NRD as potential
provider of a portion of the non - federal cost share
5) Increase channel capacity of area creeks
Objective 5: Keep flowage rates at its current level. If discharge increases from current levels,
the floodplain will expand into residential neighborhoods.
- Action 5.1: Develop a stormwater management ordinance
Funding sources and potential cost: No funding required in the development of an
ordinance Technical assistance is available through the Nebraska Department of Natural
Resources and Nebraska Floodplain and Stormwater Managers Association.
- Action 5.2: Clear and grub creeks
Funding sources and potential cost: Papio NRD, City, FEMA — average cost for
channel clearing has a range of costs from $6000 to $10,000 per 1000 linear feet
- Action 5.3: Initiating an annual maintenance schedule in conjunction with the Papio NRD
and with the local irrigation and drainage district to prevent the capacity of creeks from
diminishing over time.
Funding sources and potential cost: No cost to develop a maintenance schedule
- Action 5.4: Increase capacity of the constrictions on creeks at bridge or culvert crossings by
reconstructing them with larger spans and by excavating a larger cross - section under the
bridges.
Funding sources and potential cost: Unknown cost. Roads with the bridges and culverts may
be city -, county -, or state - owned.
6) Ensure consistent water intake at Blair's water plant despite drought threat
Obi ective 6: Install a lower intake structure at the City's water plant.
- Action 6.1: Apply for assistance from Nebraska Drinking Water State Revolving Loan
Fund Program, City of Blair, or Papio - Missouri River Natural Resources District
Potential cost: A lower intake structure was installed in Kansas City for $250,000
7) Identify and designate additional tornado shelters, publicize the locations of all public
tornado shelters to increase public awareness — perhaps with a sign on the building.
Objective 7: Provide emergency shelter(s) to which local residents would evacuate in the
event of a tornado warning
- Action 7.1: Perform an assessment of existing structures to determine their capability to be
used as tornado shelters
- Action 7.2: Create public shelters by retrofitting or new construction. FEMA has
retrofitted schools and constructed all -new shelters in several places in the Midwest.
However, most tornadoes occur in late - afternoon to early evening when a school might be
closed for the day. Furthermore, it has been reported that public tornado shelters that are
left open to the public are not used properly, with vandalism and use by vagrants as
problems. At -risk structure types include mobile homes and slab -on -grade construction
which has no basement.
- Action 7.3: Consider constructing tornado shelters for vulnerable construction like
manufactured home concentrations.
Funding sources and potential cost: FEMA's Pre - Disaster Mitigation program for
construction only — cost uncertain
8) Determine Blair's susceptibility to tree problems
Objective 8: Complete a tree inventory with assistance from the Nebraska Forest Service
- Action 8.1: Write to the Nebraska Forest Service and request a tree inventory. An
inventory is especially helpful in mitigation planning for communities which experience
regular tree - related damages. An inventory can identify problem trees and recommend
changes to the way a community administer a local tree management program (i.e., through
a Tree Board or Park Board).
Funding sources and potential cost: Free
9) Ensure on -site emergency power generating capacity for major employers and critical
facilities
Obi ective 9: Work with major employers and critical facility owners to assess their capability
to function in the event of a prolonged power outage. The wind stoiiii of July 2004 knocked
out power to the water plant for 48 hours, which could have created public health and safety
problems. Also, Cargill (Blair's number -one employer) was without power for three hours.
- Action 9.1: Although the City of Blair has a good working relationship with the local
public power provider, critical facilities and major employers should examine the need and
cost of purchasing emergency power generators.
Funding sources and potential cost: City of Blair, local businesses, Department of Homeland
Security grant — cost varies
10) Remove snow from large events to allow normal and emergency traffic to move
Objective 10: Return local traffic flow as soon as possible following a large snow event
- Action 10.1: In combination with the City's snow clearing plan, purchase "Emergency
Snow Route" signage and enforce street parking regulations so that the streets can be
cleared as quickly and efficiently as possible
Funding sources and potential cost: Minimal cost to the City for signage
11) Ensure adequate severe weather notifications to critical facilities
Objective 11: Purchasing or education of a weather radio
- Action 11.1: For City -owned critical facilities, the City should consider purchasing a
weather radio to be used in each facility for the rapid dissemination of a severe weather
warning.
- Action 11.2: If the City has noisy manufacturing facilities which may not hear tornado
sirens, the City could inform the owners of these facilities of the option that they could
purchase a weather radio.
Funding sources and potential cost: City of Blair, local businesses. Approximate cost about
$50 per radio.
Implementation
To start implementation, determining which projects should be submitted for funding will be
based on a FEMA- approved cost - benefit method. This means that proposed projects would need
to be reviewed for cost effectiveness with the assistance of state emergency management or
floodplain management personnel. Unless otherwise delegated, the City Clerk will be the
person responsible for project administration of any project selected for implementation. FEMA
has the authority to approve or deny mitigation projects applied for under their agency's
mitigation programs.
Evaluation
In this plan, several potential mitigation projects are identified; however, it is not designed to
have an all- inclusive list of projects. It is designed to be a living document which can be adapted
to the landscape as conditions change. This means that this plan should be revised and updated
as new projects are identified and prioritized and participating communities. There is a
requirement to review and update this plan every five years. To do this, communities will follow
the same procedure that the Papio NRD will utilize in its mitigation plan updates, which is
detailed on page 56 of the NRD portion of this report. There are also evaluation, update, and
revision worksheets which have been included in this plan as Appendix B to assist with this
process.