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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.