STORM SMART CITIES Integrating Green Infrastructure into Local Hazard Mitigation Plans
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United States EPA 903-K-18-001
Environmental Protection
Agency March 2018
STORM SMART CITIES
Integrating Green Infrastructure into Local Hazard Mitigation Plans
STORM SMART CITIES
Acknowledgments
This Storm Smart Cities Guide was made possible through assistance provided by the United States
Environmental Protection Agency (EPA) Office of Wetlands, Oceans, and Watersheds and the United States
Army Corps of Engineers’ (USACE) Silver Jackets Program.
Special Thanks to our Stakeholders and Planning Team:
Sherry Wilkins, Director | Huntington Stormwater Utility
Chris Chiles, Executive Director | Region 2 Planning & Development Council and KYOVA Interstate Planning
Commission
Kathy Elliott | Region 2 Planning & Development Council and KYOVA Interstate Planning Commission
Beth Wild | KYOVA Interstate Planning Commission
Breanna Shell | Planning Director, Huntington City Planning
Rebecca Albert | U.S. Army Corps of Engineers Huntington District
Steve O’Leary | U.S. Army Corps of Engineers Huntington District
Joe Trimboli | U.S. Army Corps of Engineers Huntington District
Megan Thompson | U.S. Army Corps of Engineers Huntington District
Mari Radford | Federal Emergency Management Agency Region III, Mitigation Division
Kathryn Lipiecki | Federal Emergency Management Agency Region III, Mitigation Division
Matt McCullough | Federal Emergency Management Agency Region III, Mitigation Division
Michelle Price-Fay, Associate Director | U.S. Environmental Protection Agency, Region III, Water Protection
Division
Ken Hendrickson, Green Infrastructure Lead | U.S. Environmental Protection Agency, Region III, Water
Protection Division
Samantha Rachko | U.S. Environmental Protection Agency, Region III, Water Protection Division
Susan Spielberger | U.S. Environmental Protection Agency, Region III, Environmental Assessment and
Innovation Division
Patricia Corbett | U.S. Environmental Protection Agency, Region III, Hazardous Site Cleanup Division
Jada Goodwin | U.S. Environmental Protection Agency, Region III, Water Protection Division
Diana Saintignon | U.S. Environmental Protection Agency, Region III, Water Protection Division
Daniel Taylor | U.S. Environmental Protection Agency, Region III, Water Protection Division
Special Thanks to:
Lisa Hair | U.S. Environmental Protection Agency, Office of Water
Laura Bachle | U.S. Environmental Protection Agency, Office of Water
Jamie Piziali | U.S. Environmental Protection Agency, Office of Water
Region III EPA Contract Support provided by:
CSRA International, Inc.
JH Consulting, LLC
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A G U I D E TO I N T E G R AT E G R E E N S TO R M WAT E R I N F R A S T R U C T U R E
Contents
Acknowledgments..................................................................................................................................................... ii
Foreword..................................................................................................................................................................... iv
Introduction............................................................................................................................................................... iv
Background ................................................................................................................................................................ 1
Understanding the Issues and Requirements.........................................................................................................1
Why did we Focus on Local Hazard Mitigation Planning? .................................................................................2
Stormwater, Flooding, and Green Infrastructure................................................................................................. 3
Why Green Infrastructure?..............................................................................................................................................3
Evolution of Stormwater Management.....................................................................................................................5
Flooding and Green Infrastructure in Huntington, WV........................................................................................6
Aligning Plans to Include Green Infrastructure.......................................................................................................8
How to Include Green infrastructure in the Local Hazard Mitigation Planning Process ...................... 11
Public Involvement ........................................................................................................................................................ 13
The Local Hazard Mitigation Plan Approval Process.......................................................................................... 13
WV Region 2 Local Hazard Mitigation Plan Crosswalk...................................................................................... 14
Implementing Mitigation Projects............................................................................................................................ 14
Lessons Learned.......................................................................................................................................................15
Conclusion.................................................................................................................................................................18
Appendix A: WV Region 2 Hazard Mitigation Plan / Green Infrastructure Crosswalk.................................19
Appendix B: Green Infrastructure & Local Hazard Mitigation Planning Resources.....................................23
Appendix C: References..........................................................................................................................................25
List of Acronyms.......................................................................................................................................................26
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STORM SMART CITIES
Foreword integration efforts in the City of Huntington, West
Virginia (WV) and the WV Region 2 Planning &
Public health and environmental impacts affect Development Area.
people most significantly where they live; at the
This guide serves several purposes. It:
community level. Many of the EPA’s programs
focus on providing support to communities, • Provides an overview of Local Hazard
especially in environmentally overburdened, Mitigation Planning;
underserved, and economically distressed areas,
• Captures an approach used to establish a
which have the greatest needs.
planning team;
Communities across the United States are • Identifies lessons learned and important
facing a variety of challenges, from outdated considerations for other communities
infrastructure, to water quality protection, to interested in pursuing this approach; and
the need to increase community resilience and
• Provides a crosswalk between the steps
mitigate the impacts of flooding and other
in Local Hazard Mitigation Planning,
hazards. These communities are looking for
considerations for integrating green
multi-purpose solutions to these challenges.
infrastructure, and examples from the
Green infrastructure is one approach to improve
Huntington, West Virginia Case Study.
water quality and address flooding challenges.
Green infrastructure yields many benefits,
including improved water quality, reduced Introduction
flooding, infrastructure cost savings, and healthier
In the summer of 2016, the EPA Region III Water
communities. While green infrastructure alone
Protection Division, Office of State and Watershed
may not fully address these issues, it adds
Partnerships began organizing a group of local,
capacity, flexibility, and resilience to other
regional, state, and federal agencies with the
infrastructure systems and provides multiple
intent of understanding how to better integrate
community benefits.
green infrastructure into local hazard mitigation
Communities are also realizing the need for planning. The effort focused on Huntington, WV
integrated planning; looking for overlap in the and the surrounding area.
various plans they need to secure funding, meet
This group included representatives from:
regulations, ensure public safety, and encourage
sustainable economic growth. When these plans • the Huntington Stormwater Utility (HSU);
interconnect, and include similar approaches and • Huntington City Planning;
solutions, communities increase the likelihood
that these plans will be realized. This approach • The WV Region 2 Planning & Development
also ensures that communities can take full Council (PDC2);
advantage of available funding. As a result, • The KYOVA Interstate Planning Commission;
communities across the United States are starting • The Huntington District Office of the USACE;
to look at how to integrate green infrastructure
• The West Virginia Department of
into their Local Hazard Mitigation Plans.
Environmental Protection (WVDEP);
This Storm Smart Cities Guide examines how • The Federal Emergency Management
communities can integrate green infrastructure Agency, Region III (FEMA); and
into their Local Hazard Mitigation Plan. It • EPA Region III.
provides a case study of green infrastructure
iv
A G U I D E TO I N T E G R AT E G R E E N S TO R M WAT E R I N F R A S T R U C T U R E
While the initial
focus of the Hazard Mitigation –
Background
group was to the effort to reduce
explore how to loss of life and
Understanding the Issues
incorporate green property by lessening and Requirements
infrastructure into the impact of disasters Stormwater management is essential for healthy
the WV Region (FEMA). communities in the 21st century. Without it,
2 Local Hazard pollution entering local waterbodies and the
Mitigation Plan, risk of flooding increases. Stormwater runoff
the overall goal was to better align plans and is one of the largest sources of water pollution
resources toward reducing the impact of flooding in urban and suburban areas. It presents many
and helping to protect and improve local water environmental, social, and economic challenges.
quality. As an extension of early EPA outreach Rain and snowmelt that flows over land or
efforts, the team developed, and was approved impervious surfaces, such as paved streets,
for, additional support under the USACE “Silver parking lots and building rooftops, does not
Jackets” program creating the Huntington Silver soak into the ground, generating stormwater
Jackets Team. runoff. The runoff picks up pollutants such
As the Team was formed, the Region 2 Planning as trash, chemicals, oils and dirt/sediment
& Development Council was just beginning that harm rivers, streams, lakes and coastal
the process of updating its required Local Hazard waters. These pollutants directly impact water
Mitigation Plan. Through team meetings, quality. Increases in stormwater runoff are
stakeholder meetings and workshops, the team not only a concern for water quality, it also
worked to: directly contributes to urban flooding. Along
with protecting their environmental health,
• Develop a shared understanding of local communities must also plan for how they will
flooding issues; reduce the threats from natural disasters. FEMA
• Better understand green infrastructure and requires communities to develop a Local Hazard
frame it in the context of Huntington, WV; Mitigation Plan. These plans list all the potential
• Identify opportunities within the local hazards and natural disasters that a community
hazard mitigation planning process to better might experience and describe the actions that
incorporate green infrastructure as a tool for the community will take to reduce or mitigate
local flood hazard mitigation; and those threats. Flooding is one of the most
common natural disasters that communities
• Identify next steps toward implementing face and the impact to the community can be
green infrastructure practices. significant and costly.
The link between stormwater and flooding, and
their associated planning and management
requirements, provide communities with the
opportunity to consider multi-benefit solutions.
Green infrastructure is a prime example of a
multi-benefit solution. It can be used to both
improve water quality and reduce the amount of
stormwater runoff.
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STORM SMART CITIES
Why did we Focus on Local In West Virginia, most local hazard mitigation
plans are developed at a regional level through
Hazard Mitigation Planning? Regional Planning & Development Councils.
FEMA has different types of funding that are This regional approach was adopted between
available to states, tribes, and local communities 2011 and 2012, with the support of the West
to use for hazard mitigation. FEMA requires Virginia Department of Homeland Security and
communities to develop a Local Hazard Emergency Management (WVDHSEM). The
Mitigation Plan and update that plan every five WVDHSEM is the state level emergency
years. Local Hazard Mitigation Plans should management agency in West Virginia
cover all types of hazards that a community responsible, along with FEMA, for approving
might face, and discuss ways to reduce the local hazard mitigation plans. This regional
impacts of each hazard. Local Hazard Mitigation planning approach adds capacity to
Plans may be developed at the city, county, communities that may not have the budget or
or regional level based on capacity and local personnel to develop individual plans.
preference. This Storm Smart Cities Guide It promotes thinking across local political
highlights a Case Study focused on Local Hazard boundaries and seeks to mitigate hazards
Mitigation Plans because they are developed that have the potential to impact multiple
by local stakeholders and reflect local priorities. communities at the same time.
This process of engaging local stakeholders,
The City of Huntington is part of the WV Region
discussing the potential hazards in a community,
2 planning district and includes Mason, Cabell,
and developing plans to address those hazards
Wayne, Lincoln, Mingo, and Logan counties. The
provides is an opportunity for communities
WV Regional Planning & Development Council
to think strategically about aligning resources
(PDC2) represents 31 units of government and
toward solving problems.
is responsible for developing the Region 2
Hazard Mitigation Plan (see Figure 1, below).
Huntington,
West Virginia
Figure 1: Map of West Virginia Regional Planning and Development Areas.
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Stormwater, Flooding, Watershed – An area of land that drains to a
and Green Infrastructure single point, usually the outlet of a stream or
river. Planning for stormwater management
Why Green Infrastructure? and flood mitigation should consider the
entire watershed.
This collaborative planning effort focused on
green infrastructure because of its ability to
address multiple water related issues. In its is also a rapid increase in the water levels in those
simplest terms, green infrastructure is an approach streams. This increases the impacts of localized
to stormwater management and flood mitigation flooding, streambank erosion, destruction of
that provides areas for water to soak into the property, and in some cases flash flooding.
ground, or evaporate back into the air, rather than
These flooding events can be highly damaging
forming runoff and leading to flooding.
even though they are localized. It is important
As communities historically developed, the to note that increases in impervious surface area
amount of impervious surfaces such as roads, in a community mean that even smaller storm
sidewalks, and parking lots within the community events can lead to flooding because the overall
increased. These surfaces are referred to as volume of stormwater runoff increases. Trends
impervious because they do not allow rainwater show that storm intensity and frequency are
to soak into the ground. Community flood risk increasing causing even greater concern. Western
increases as the area of impervious surface WV experienced an overall increase of 2% to 10%
increases. Since rainwater falling on impervious in annual precipitation volume between 1901 and
surfaces is not able to soak into the ground, it 2015 (US EPA, 2016).
must either run off of that surface or collect in
A green infrastructure approach to stormwater
low-lying areas.
management and flood risk reduction seeks to
Most communities have some type of stormwater capture rainwater as close to where it falls as
collection system comprised of storm drains possible and let that water soak back into the
and pipes. These systems are referred to as grey ground. It integrates multiple smaller practices
infrastructure because they are constructed of throughout the watershed, encourages the
man-made materials and are engineered and preservation of existing green space, increases
designed to collect water and move rainwater tree canopy cover, works to restore degraded
rapidly out of the community. However, these natural areas, and adds green space where
systems are often undersized and outdated possible. All of this is done with consideration
compared to the increases in impervious surfaces of traditional piped stormwater systems, so
within the community over time. As these grey that the green infrastructure elements reduce
infrastructure systems become overwhelmed, they the volume of runoff that streams and piped
are no longer able to collect additional stormwater systems need to carry.
runoff. That excess runoff then flows across the
Green infrastructure includes natural systems
surface of the community and collects in low-lying
and areas of land as well as practices that
areas, leading to localized flooding.
are engineered to mimic natural systems,
Stormwater runoff in urban areas is also a major using soils and vegetation, in a smaller area.
cause of water pollution. As rain water runs These smaller practices can be integrated into
off the ground, it can collect and carry trash, the community, adding both aesthetic and
bacteria, and heavy metals. These pollutants are functional benefits. Green infrastructure
ultimately carried to local streams and rivers. As systems can also be flexible and adaptable.
high volumes of runoff enter local streams, there They can be installed in the community over
3
STORM SMART CITIES
Downspout Disconnect – This simple practice reroutes rooftop drainage pipes
from draining rainwater into the storm sewer to draining it into rain barrels, cisterns,
or permeable areas. It can be used to store stormwater and/or allow stormwater to
infiltrate into the soil.
Rainwater Harvesting – Rainwater harvesting systems collect and store rainfall for
later use. When designed appropriately, they slow and reduce runoff and provide a
source of water. This practice is particularly valuable in arid regions, where it could
reduce demands on increasingly limited water supplies.
Rain Gardens – Rain gardens are versatile features that can be installed in almost any
unpaved space. Also, known as bioretention, or micro-bioretention cells, these shallow,
vegetated basins collect and absorb runoff from rooftops, sidewalks, and streets.
This practice mimics natural hydrology by infiltrating, evaporating, and transpiring
stormwater runoff.
Planter Boxes – Planter boxes are urban rain gardens with vertical walls and either
open or closed bottoms. They collect and absorb runoff from roofs, sidewalks, parking
lots, and streets and are ideal for space-limited school sites in dense urban areas.
Bioswales – Bioswales are vegetated, mulched, or xeriscaped channels that provide
stormwater treatment and retention as it moves from one place to another. Vegetated
swales slow, infiltrate, and filter stormwater flows. As linear features, they are
particularly well suited to being placed along streets and parking lots.
Permeable Pavements – Permeable pavements infiltrate, treat, and/or store rainwater
where it falls. They can be made of pervious concrete, porous asphalt, or permeable
interlocking pavers. This practice could be particularly cost effective where land values
are high and flooding or icing is a problem.
Images courtesy the Low Impact Development Center
Green Roofs – Green roofs are covered with growing media and vegetation that
enable rainfall infiltration and evapotranspiration of stored water. They are particularly
cost-effective in dense urban areas where land values and stormwater management
costs are likely to be high.
Urban Tree Canopy – Trees reduce and slow stormwater by intercepting precipitation
in their leaves and branches. Many cities have set tree canopy goals to restore some
of the benefits of trees that were lost when the areas were developed. Homeowners,
businesses and community groups can participate in planting and maintaining trees
throughout the urban environment.
Figure 2: Examples of Green Infrastructure Practices.
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A G U I D E TO I N T E G R AT E G R E E N S TO R M WAT E R I N F R A S T R U C T U R E
time. Figure 2 (see previous page) provides Evolution of Stormwater
some example green infrastructure practices
and a description of how they are used. Management
Prior to the 1980s, the importance of treating
Green infrastructure solutions can be as
stormwater runoff was not fully recognized.
unique as the landscapes in which they are
When passed in 1972, the Clean Water Act’s
implemented. This flexibility is a major benefit
(CWA) primary emphasis was to reduce the
of the approach. Many times, successful
amount of pollution discharging into waterways
programs have locally-tailored guidance and
from wastewater treatment plants and industrial
standards that reflect community priorities
facilities. By the 1980s, regulators and others
and regulatory needs. Communities can easily
began to understand the importance of treating
integrate green infrastructure initiatives into
stormwater runoff from farmland, city streets,
other community improvement or capital
construction sites and suburban lawns. In 1987,
projects such as transportation corridor
Congress amended the CWA, which spurred new
upgrades, pedestrian safety upgrades,
regulations and programs with requirements for
neighborhood revitalization efforts, road re-
different sized communities.
paving, and utility work. By integrating green
infrastructure into these planned projects, Issued in 1990, EPA established Phase I of
communities can achieve significant cost the National Pollutant Discharge Elimination
savings as compared to retrofit projects System (NPDES) Municipal Separate Storm
focused solely on installing green infrastructure Sewer System (MS4) regulations requiring MS4
practices. Education for private developers can operators serving populations of 100,000 or
help them include green infrastructure into more to develop comprehensive stormwater
their designs. management programs (SWMP) to reduce the
discharge of pollutants from their storm sewer
In the past, green space has been viewed as
systems. In 1999, EPA extended regulations to
something that may be aesthetically pleasing
cover smaller communities, known as Phase
and nice to have, but it was not viewed as
II MS4s. Phase II MS4 regulations apply to
a valuable, functional part of a community.
communities located in urbanized areas as
Communities are making the shift to recognize
defined by the Bureau of Census, or on a case-
space as necessary for maintaining healthy
by-case basis by the NPDES permitting authority.
social, ecological, and economic systems. Green
Phase II requires smaller entities that operate
infrastructure provides essential services to a
MS4s in urban areas to obtain NPDES permits.
community. These benefits include:
Individual NPDES permits generally cover Phase
• Improved water quality and increased water I MS4s and general NPDES permits cover Phase
supply; II MS4s. NPDES permits for regulated MS4s
• Reduced flooding; require permittees to develop a SWMP, which
describes the stormwater control practices that
• Increased property values; the permittee implements to comply with permit
• Reduced filtration costs; requirements and minimize the discharge of
• Infrastructure cost savings; pollutants from the sewer system. Phase II permit
holders must implement six minimum control
• Improved air quality;
measures to reduce polluted stormwater runoff.
• Increased community resilience; Together, the Phase I and Phase II regulations
• Increased habitat improvement and aim to keep harmful pollutants out of local
connectivity; and waterbodies.
• Healthier communities.
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STORM SMART CITIES
Flooding and Green low-lying areas of the city. The city is bisected by
a major active CSX railway moving commodities
Infrastructure in Huntington, WV in the Region. Part of the railway is elevated in
Flooding is a significant concern for the City of the city, separating the northern side of the city
Huntington. Large floods along the Ohio River from the southern side of the city. Roadways are
in 1913 and 1937 heavily damaged portions of connected by underpasses that carry the north-
the city. During the 1937 flood, as many as south streets below the rail line. These low-lying
25,000 city residents were affected, with 11,000 underpasses frequently flood, blocking traffic
requesting Red Cross services (Tabler, 2015). (see Figure 3). The flooded underpasses impede
As a result, the USACE built a floodwall along vital emergency services, cutting off downtown
the Ohio River between 1938 and 1940. The and Marshall University from the rest of the city.
Floodwall runs from West 3rd Street on the Cabell Huntington Hospital is less than one mile
city’s western edge to 24th Street on the city’s south of the 16th Street underpass and
eastern edge. ambulances have experienced problems getting
to the hospital when the underpasses are
While the floodwall has significantly reduced flooded.
the risk of larger flooding from the Ohio River, it
does not mitigate localized flooding. As the city Flooding not only physically impacts the
grew over the years, other waterbodies have community, it has considerable financial
been impacted by increased surface water flow. impacts as well. City residents maintain a total
In 2016, flooding in Fourpole Creek caused of 259 National Flood Insurance Program (NFIP)
significant flooding in Huntington’s Ritter Park policies, with $39 million coverage in force.
area. Huntington also faces regular flooding in When flooding damages properties, owners can
Figure 3: Flooding in the City of Huntington. Photo credit: Herald Dispatch
6A G U I D E TO I N T E G R AT E G R E E N S TO R M WAT E R I N F R A S T R U C T U R E
make claims against their policies for losses. Under the MS4 permit, the HSU is responsible for
Historically, 173 losses have been paid, totaling maintaining and repairing existing stormwater
$1.4 million. While this number is significant, infrastructure, but they are also responsible
it does not fully capture the magnitude of the for educating the public and ensuring that
flooding concerns in Huntington as there are stormwater runoff from redevelopment and
most likely city residents who may not have new development sites is reduced, according to
flood insurance policies and/or may not have WVDEP requirements (see Figure 5). The WVDEP
filed claims for losses. Stormwater Management and Design Guidance
Manual, Chapter 2, specifies that all new and
HSU is the local agency responsible for
redevelopment sites (disturbing 1 acre or
managing both the floodwall along the Ohio
greater) must capture and manage on site the
River, and stormwater runoff within the city.
first inch of rainfall in a 24-hour storm using,
HSU’s authority for managing stormwater runoff
“canopy interception, soil amendments,
within the city comes from its responsibility to
evaporation, rainfall harvesting, engineered
manage the city’s Phase II MS4 permit issued by
infiltration, extended filtration and/or
the WVDEP.
evapotranspiration and any combination of
Under the MS4 permit, the HSU implements the [these] practices.”
following components:
This regulatory requirement has been the
• public education and outreach regarding primary driver for green infrastructure projects in
development permitting requirements; the City of Huntington. As of 2017, the HSU had
approved 29 green infrastructure projects. A list
• public participation and involvement in the
of completed projects is shown in Table 1. These
process;
practices are helping to reduce stormwater
• detection and elimination of illicit discharges; runoff and flooding in the City, while also
• runoff control at construction sites; and improving water quality.
• post-construction stormwater management,
and pollution prevention.
Six Minimum Control Measures
Public Education and Outreach to distribute learning materials and personally inform citizens
about the impact polluted stormwater runoff has on water quality.
Public Involvement/Participation to provide for citizen representation in program development
and implementation.
Illicit Discharge Detection and Elimination program to detect and eliminate illicit discharges to
the storm sewer system and enforce penalties, where appropriate.
Construction Site Runoff Controls to control sediment and erosion from construction sites for any
construction activities that disturb 1 acre or more of earth.
Post-Construction Runoff Control to address the discharge of post-construction stormwater runoff
from new development and redevelopment for any projects that disturb 1 acre or more of earth.
Pollution Prevention/Good Housekeeping methods and procedures to reduce polluted runoff
from municipal operations.
7STORM SMART CITIES
Aligning Plans to Include green infrastructure. Aligning plans at both the
regional and local levels increases the likelihood
Green Infrastructure that plan goals will be realized.
Incorporating green infrastructure projects into
While the HSU’s management of the
hazard mitigation planning is not difficult. In
Huntington MS4 permit has led to multiple
fact, the federal guidelines outlining mitigation
green infrastructure practices, the Huntington
plan requirements strongly advocate that
Silver Jackets Team realized that the Region
projects beyond those traditionally funded
2 Local Hazard Mitigation Plan provided
by FEMA be included in the plan to address
additional opportunities to advance green
vulnerabilities. Regulations guiding the
infrastructure in the city and throughout the
hazard mitigation planning process require two-
Region. For Huntington, the plan broadens the
way alignment of mitigation with other planning
applicability of the HSU’s green infrastructure
efforts to helps support resiliency. Communities
efforts. Initially implemented as a response
should integrate mitigation considerations into
to the MS4 regulatory driver, the mitigation
their other plans, and include measures
planning process allows HSU to explore green
suggested by the other plans in the hazard
infrastructure program applicability beyond new
mitigation document. For example, a
and re-development efforts. A joint stormwater
community’s comprehensive development,
management-hazard mitigation focus can
economic development and land use plans are
highlight green infrastructure options that
applicable for integration. Other documents
benefit both water quality and flood mitigation.
that focus on watershed protection and
stormwater management plans may also apply. For the other communities in the region,
It is important to look for points of integration participating in the mitigation plan update
across regional-level plans as well as local-level process provides exposure to the green
plans. Regional plans allow for an examination infrastructure approaches and practices and
of hazard impacts that cross jurisdictional lines, their benefits. It offers the chance for Huntington
both from a mitigation perspective, and a green and the HSU to become regional leaders in
infrastructure perspective. Local level plans may planning and implementing green infrastructure.
provide more detail about local flood hazards This leadership will be important in promoting
or identify local projects that could incorporate regional awareness of green infrastructure and
Figure 4: Localized flooding at railway underpasses impacts traffic movement in the City of Huntington. Photo credit: Sherry Wilkins, HSU
8A G U I D E TO I N T E G R AT E G R E E N S TO R M WAT E R I N F R A S T R U C T U R E
building stakeholder support. Huntington’s
Type of
success will serve as an example to other
Project Name Location
local government representatives. The hazard
mitigation planning process provides the Bioretention Amp Gymnastic Kinetic Park
opportunity for other community leaders in WV Cell
Region 2 to speak directly with, and learn from Residential 10th Street
their peers. The planning process also serves as a Apartments
starting point for expanding the conversation on Cabell-Huntington 13th Avenue &
multiple uses for green infrastructure. Hospital Cypress St.
Parking Lot 15th Street
One important benefit of aligning plans to 16th Street
address related issues is the potential to expand CVS Pharmacy Fifth Avenue
the sources of project funding and be strategic Dollar General Monroe Avenue
about the use of funding. When projects are
Family Dollar Waverly Road
linked to multiple outcomes – flood reduction,
water quality improvement, public safety and RMS Pro Finishes Third Avenue
property loss prevention – communities can seek Sheetz Fifth Avenue
funding from multiple agencies and organizations Beltone 6th Avenue
to realize project goals. FEMA has traditionally Fairfield Inn Kinetic Park
funded hazard mitigation efforts, while state Residential 6th Avenue
and federal environmental agencies are likely to Apartments
focus more on water quality. Other organizations Taco Bell Kinetic Park
may be interested in establishing wildlife habitat,
Atomic 7th Avenue
protecting stream health, or creating safer routes
Distribution
for children to walk to school.
Bimbo Bakery 14th Street West
Green infrastructure can accomplish multiple Parking Lot & Adams
goals. The same green infrastructure project St. Mary’s Hospital 1st Avenue
that helps mitigate flooding might also protect Texas Roadhouse US Route 60
water quality, provide habitat, and help control Uptowner Inn Madison Avenue
traffic patterns so students can more safely cross Impoundment Lot & 16th Street W.
a busy intersection. This increases the likelihood Infiltration Huntington Doulton Avenue
that communities will be able to fund these System Gardens
projects. Communities have the opportunity to Sheetz 6th Avenue
demonstrate responsible fiscal stewardship by
Porous River Park 6th Avenue
choosing solutions that address multiple issues.
Pavement Hospital Gym
Plan alignment helps community leaders identify Sheetz 6th Avenue & 8th
opportunities to reduce cost and deliver multiple Street
benefits from all planned projects in their Residential 6th Avenue
community. Planned road repaving or realignment Apartments
projects may provide the opportunity to install Buffalo Crossing Third Avenue
green infrastructure within the public right-of- Development
way. Utility or sewer upgrades may offer similar Parking Lot First Street
opportunities. The cost savings of adding green Cookout 25th Street
infrastructure to other planned infrastructure Restaurant
projects can be considerable when compared to Stormwater Taco Bell Kinetic Park
installing green infrastructure as a stand-alone Planters
project. The key lesson is identifying those projects
and opportunities early in the planning process. Table 1: Completed Green Infrastructure Projects in Huntington
9STORM SMART CITIES
As the custodial agency of the regional of the city, the underpasses on 1st, 8th, 10th,
mitigation plan in the Huntington area, the PDC2 16th, and 20th streets, US 60 near St. Mary’s
has begun integrating mitigation projects, where Medical Center, at various Brownfields sites in
appropriate, into its regional comprehensive the city, and along Fourpole Creek at Ritter Park.
economic development strategy (CEDS). The Local officials also continue to look for ways to
CEDS provides another way to raise awareness integrate green infrastructure into other projects
of mitigation efforts, and may provide a venue such as pedestrian walkways, intersection re-
for sharing the economic benefits of green designs, urban revitalization, road repaving and
infrastructure. utility work. To date, all green infrastructure
projects in Huntington have been on privately
As the PDC2 updates the region’s Hazard
owned property. However, local officials are
Mitigation Plan, Huntington is considering the
eager to explore the feasibility of these projects
integration of green infrastructure solutions
on publicly held lands as well.
to help address flooding in the Highlawn area
Minimum Measure #5 contains provisions for watershed protection and site and neighborhood design
(see Section 2.1). These provisions must translate into local codes, policies, and planning documents so
that they become design standards for new development and redevelopment projects. The watershed
protection provisions are likely to be incorporated into local zoning and/or subdivision codes because they
relate to site design, reduction of impervious cover and protection of sensitive areas, trees and vegetation,
and soils. The site and neighborhood design provisions can be incorporated into local zoning and/or
subdivision codes or into a stand-alone stormwater or environmental code. This step is a prerequisite to
having a functioning stormwater program that follows the stipulations of the MS4 general permit.
Part II, Section C.b.5.a.i of the MS4 General Permit outlines the Watershed Protection Elements of Minimum
Measure #5. This section requires the MS4 or permittee to incorporate six watershed protection elements
into local development codes, policies, and ordinances, as well as comprehensive and master plans for land
use, transportation, and neighborhoods. The six elements include:
1. minimize impervious surfaces;
2. preserve, protect, create and restore ecologically sensitive areas;
3. prevent or reduce thermal impacts to streams;
4. avoid or prevent hydromodification of streams and other waterbodies;
5. protect trees and other vegetation; and
6. protect native soils.
Part II, Section C.b.5.a.ii of the MS4 general permit outlines the site and neighborhood design elements
of Minimum Measure #5. The general objectives of this section are stated as follows. “The permittee shall
develop a program to protect water resources by requiring all new and redevelopment projects to control
stormwater discharge rates, volumes, velocities, durations and temperatures. These standards shall apply
at a minimum to all new development and redevelopment disturbing one acre or greater, including
projects less than one acre that are part of a larger common plan of development or sale.” The specific
performance standard of this section contains the primary design goal for post-construction stormwater
designs and practices. “Site design standards for all new and redevelopment that require, in combination
or alone, management measures that keep and manage on site the first one inch of rainfall from a 24-hour
storm preceded by 48 hours of no measurable precipitation.” Runoff volume reduction can be achieved by
canopy interception, soil amendments, evaporation, rainfall harvesting, engineered infiltration, extended
filtration and/or evapotranspiration and any combination of the aforementioned practices.
Figure 5: West Virginia Stormwater Management and Design Guidance manual - Chapter 2
10A G U I D E TO I N T E G R AT E G R E E N S TO R M WAT E R I N F R A S T R U C T U R E
How to Include Green for future actions, planners should be familiar
with potential mitigation strategies early in the
Infrastructure in the Local Hazard HIRA phase. Therefore, to fully integrate green
Mitigation Planning Process infrastructure into the plan, the core planning
team must be aware of the types and benefits
The requirements for hazard mitigation planning
of green infrastructure projects as the HIRA is
are governed by 44 Code of Federal Regulation
developed. The team should begin the planning
(CFR) Part 201 and FEMA is the agency that
process with a shared understanding of the
oversees the process. The regulations require
opportunities that green infrastructure can
that Hazard Mitigation Plans include two
provide. This may mean that the planning team
primary sections, 1. the hazard identification and
will require training on green infrastructure
risk assessment (HIRA) and 2. the mitigation
before they start the planning process.
strategy. The HIRA provides the building blocks
and context for specific projects that are later During the HIRA phase, planners “profile” the
described in the action plan. hazards that could impact their communities.
These profiles provide a well-rounded overview
It is important for the Local Hazard Mitigation
of the hazard, ranging from dictionary-style
Plan to make clear connections between
definitions to detailed discussions on the
identified hazards and recommended mitigation
extent of the hazard and the specific negative
strategies and actions. Because the HIRA is
impacts the hazard could create in the
used to identify hazards and justify the need
community. Profiles list historical occurrences,
Figure 6: Green infrastructure in Huntington, West Virginia. Photo credit: Sherry Wilkins, HSU
11STORM SMART CITIES
contain graphic risk maps, and often include Green infrastructure can be integrated in
loss estimates. In the context of green the plan as both a larger goal and as specific
infrastructure, when HIRA planners establish actions or projects. An example goal may be
a flooding profile, they should acknowledge to “significantly reduce localized flooding by
stormwater-related flooding issues. This capturing stormwater runoff from impervious
includes describing the connections between surfaces using green infrastructure.” A goal
impervious surfaces, increases in stormwater might also be more specific, such as identifying
runoff, and local flooding. Identifying areas with targeted geographic areas – “eliminate flooding
high concentrations of impervious surfaces in in the Mapleview neighborhood by using
the HIRA phase, as well as identifying how and green infrastructure to capture stormwater
where green infrastructure might be effective runoff along Highmark Road”. Actions could list
in the community, provides a backdrop for the specific programs through which this might be
inclusion of green infrastructure projects later in accomplished, or specific areas where green
the mitigation strategy phase. infrastructure practices would be installed.
The mitigation strategy phase of the planning It is important to note that the mitigation
process requires communities to set goals strategy does not need to include all the
related to risk reduction and then further specific sites where green infrastructure might
outline actions that work toward achieving be installed. While identifying specific actions
those goals. It is important to understand at specific sites can illustrate the intent of a
that goals may be very broad and could be strategy, planners are not expected to know
aspirational, such as “completely eliminating every site where green infrastructure might be
flood-related losses.” Actions, in this sense, installed in their local area. It is more important
identify specific mitigation projects. for the mitigation strategy to include green
infrastructure in goals, outline how specific
Goals and actions should be based on the
actions will be determined, and provide
findings of the HIRA. As such, it is important to:
examples of those actions.
• acknowledge specific flood impact areas;
Also, green infrastructure strategies might
• prioritize green infrastructure-related actions not all focus on direct construction of green
and goals; and infrastructure practices. The plan might also
• describe the implementation of green include green infrastructure strategies related
infrastructure-related projects in the action plan. to the adoption of ordinances, education and
outreach, or partnership programs to increase
This approach not only supports the cost and
the adoption of green infrastructure. Green
benefit of specific projects, it also helps to
infrastructure projects will likely be identified
frame the thinking with respect to where green
as potential subset of many other flood risk
infrastructure projects should be located, and
reduction efforts that are identified in the plan.
how those locations were determined.
12A G U I D E TO I N T E G R AT E G R E E N S TO R M WAT E R I N F R A S T R U C T U R E
Public Involvement The Local Hazard Mitigation Plan
Public involvement in the mitigation planning Approval Process
process is crucial. The plan itself serves as Once the local planning team has completed the
a mechanism for garnering input from the Local Hazard Mitigation Plan, it requires approval
members of a community, especially those with at both the state and federal levels. Figure 7
diverse interests. The involvement requirement in (see following page) provides an overview of
the mitigation planning process includes both the the steps in the review process. State review
general public and a select team of stakeholders. is conducted by the State Hazard Mitigation
Stakeholders represent key organizations in a Officer (SHMO), or State Mitigation Planner, at
community, ranging from local governments, to the state level emergency management agency.
education, non-profits and the private sector. Prior to submitting the plan to the SHMO, the
Involvement should be via multiple means, local planning team should ensure that the plan
including town hall meetings, document review, meets all requirements of Title 44 CFR 201.6.
online surveying, social media, etc. FEMA provides multiple guides and tools to
Incorporating green infrastructure into the assist local planners in developing their plan.
Local Hazard Mitigation Plan will require The Local Mitigation Planning Handbook –
consideration of the public involvement process. provides overview and guidance on the steps in
The public and stakeholder groups may need the planning process. The Local Mitigation Plan
workshops or training to learn and understand Review Tool - provides a checklist that can be
more about what green infrastructure is, how it used to identify where the local plan meets the
works, and how it relates to hazards identified regulations. Appendix B provides links to both
in the plan. The core planning team should documents.
consider how to fold this training into the public After the SHMO has received the Local Hazard
outreach process. They should also allow time Mitigation Plan and is satisfied that it meets
for the public to ask questions and discuss federal requirements, the state will send the plan
green infrastructure in the simplest of terms. to the FEMA Regional Office. FEMA will conduct
In the case of the West Virginia Region 2 Local its review within 45 days and provide a completed
Hazard Mitigation Planning Process, the team Local Mitigation Plan Review Tool to the state.
held multiple stakeholder meetings, as well as In either of these steps, the SHMO may request
public workshops, to build a shared additional clarification or revisions to the plan.
understanding of green infrastructure and it’s Once the FEMA Regional office has approved the
use and application in southwest WV. plan, they will notify the SHMO that the plan is,
Representatives from EPA, FEMA, USACE, HSU, “approvable pending adoption” (APA). This means
and the PDC2 presented on the connections that once the local elected officials have formally
between stormwater, flooding, green adopted the plan, it will become the approved
infrastructure and hazard mitigation. Workshop plan for that region. The final step is for the
attendees commented that it was helpful to hear planning group to send documentation of formal
from federal, state and local agencies in the adoption of the plan to the SHMO.
same meeting.
13STORM SMART CITIES
Local Hazard Mitigation Plan Approval Process WV Region 2 Local Hazard
Local / regional stakeholders Mitigation Plan Crosswalk
develop the Local Hazard FEMA’s Local Mitigation Planning
Mitigation Plan (LHMP) Handbook breaks down the local
planning process into nine tasks. While
Required Revisions each of the nine tasks is important,
this guide does not review each
LHMP is submitted to the State of the tasks, but rather provides a
Hazard Mitigation Officer crosswalk between the FEMA planning
(SHMO) for State Review tasks and suggestions for how green
infrastructure could be incorporated in
Required Revisions each task (Appendix A). It also provides
examples of how green infrastructure
was considered in the WV Region 2
State submits the LHMP to
Federal Emergency
Local Hazard Mitigation Plan being
Management Agency (FEMA) developed by PDC2.
Regional Office for Review
Implementing Mitigation
Projects
Communities undertake mitigation
FEMA reviews the LHMP using projects in a variety of ways. In many
the Local Mitigation Plan cases, communities issue permitting
Review tool requirements through floodplain
development ordinances, stormwater
management regulations and other
mechanisms that encourage
development to be more resilient. In
FEMA issues “approvable
other instances, communities may apply
pending adoption”
for FEMA funding for implementing
mitigation projects, either on an annual
basis, or following a Presidential Major
Disaster Declaration. Communities must
have an approved Local Hazard
Local jurisdictions adopt plan Mitigation Plan to be eligible for these
and submit resolutions funds.
FEMA issues approval letter
and final plan review tool
Figure 7: Local Hazard Mitigation Approval Process. Adapted from FEMA
Local Mitigation Planning Handbook Figure 8.1: https://www.fema.gov/
media-library-data/20130726-1910-25045-9160/fema_local_mitigation_
handbook.pdf
14A G U I D E TO I N T E G R AT E G R E E N S TO R M WAT E R I N F R A S T R U C T U R E
Funding Mitigation Projects
Lessons Learned
Huntington’s experience with green
FEMA’s Local Hazard Mitigation Planning infrastructure and this project contain lessons for
Handbook* lists the following funding other communities considering the approach.
opportunities: This section provides a list of those lessons along
• Hazard Mitigation Grant Program. with a brief discussion.
FEMA’s Hazard Mitigation Grant Program 1. Form a coalition of stakeholders -
assists in implementing long-term A coalition of stakeholders improves
hazard mitigation measures following accountability and motivation. This project
Presidential disaster declarations. started by gathering a diverse group of local,
Funding may be authorized after a regional, state, and federal stakeholders. Each
declaration to implement projects in stakeholder organization brought a unique
accordance with State, Tribal, and local perspective that helped the group to better
priorities. understand the challenges and opportunities.
• Pre-Disaster Mitigation. FEMA’s Pre- State and federal stakeholders helped to
Disaster Mitigation Grant Program provide the regulatory context for hazard
provides funds on an annual basis mitigation planning, stormwater
for hazard mitigation planning and management and flood mitigation. They also
mitigation project implementation helped the group understand technical and
prior to a disaster. The goal of the financial resources that could be used to
program is to reduce overall risk to the support local activity. Local stakeholders
population and structures, while at the provided input on impacts of flooding and
same time also reducing reliance on stormwater in their communities. They
Federal funding from actual disaster understood local perspectives and local
declarations. knowledge of green infrastructure. Regional
• Flood Mitigation Assistance. FEMA’s stakeholders understood the similarities and
Flood Mitigation Assistance Program differences across neighboring communities.
provides funds on an annual basis so As much of the planning takes place at both
that communities can take measures to the local and regional levels, regional
reduce or eliminate risk of flood damage stakeholders provided insight on how local
to buildings insured under the National plans were developed, when they were
Flood Insurance Program (NFIP). developed, who was involved, and where
there might be points of alignment between
* FEMA Local Mitigation Planning Handbook: these plans.
https://www.fema.gov/media-library- Communities interested in pursuing a similar
data/20130726-1910-25045-9160/fema_local_ effort should consider including
mitigation_handbook.pdf representatives from the following
organizations at the start of planning
discussions:
• The local utility or authority responsible for
managing stormwater;
• The organization responsible for local
hazard mitigation planning;
• The City, County, and Regional Planning
organizations;
15STORM SMART CITIES
• Local floodplain managers; 3. Build on previous successes – This effort
• Local watershed association managers; started as an outgrowth of previous successes
in Huntington, WV including the EPA “Making a
• County or Regional Conservation Districts Visible Difference” initiative, Brownfields
and/or agricultural offices;
revitalization efforts, stormwater management
• Community or Neighborhood efforts, and other locally driven projects to
associations; promote a livable and economically successful
• Local universities or other large city. The relationships formed during previous
institutions; engagement helped build momentum and
• The SHMO or State Mitigation Planner; interest in this planning effort. Communities
should look to build on their own previous
• The State Environmental Protection successes, knowledge, understanding, and
Agency (MS4/stormwater, green relationships when undertaking a similar
infrastructure, and watershed planning effort. This engagement can help to reframe
contacts); problems and keep stakeholders engaged in
• The FEMA Regional Mitigation Planning the process.
Office; and
4. Understand local experience and capacity
• The EPA Regional green infrastructure for green infrastructure –
contact.
Each community will have a different level of
2. Identify local champions – In any local effort, understanding and capacity for green
it is important to have a local champion. Local infrastructure. Local motivations or drivers for
champions are more than just stakeholders; green infrastructure may differ across
they are engaged and invested in the issues. communities. In this effort, HSU and Marshall
They want a positive outcome for their local University were the primary organizations
community. Local champions understand engaged in green infrastructure projects. This
local drivers and keep stakeholders engaged. engagement was initially motivated
Champions can emerge in several ways, and by regulatory MS4 drivers. This planning
regulatory drivers may create conditions effort introduced new possibilities to expand
fora local champion. In this effort, there were interest in the benefits of green
multiple local champions. HSU is a champion infrastructure. However, it was important to
for stormwater management and green understand how flood mitigation strategies
infrastructure. The Huntington City Planning might align with processes already in
Office is a champion for a livable City. PDC2 is a place and what new approaches were
champion for engaged planning that leads to necessary to expand local capacity. New
tangible results for the Region. Each of these approaches might include; changes to the
champions was important to understanding planning and implementation process for
local needs, involving local stakeholders, and infrastructure maintenance and replacement
keeping this project moving forward. They (road repaving, water/sewer upgrades, etc.),
were invested in both the process and the adopting new policies or ordinances,
outcomes for their community. Identifying and establishing new partnerships, and creating
engaging local champions is an important step new funding strategies.
toward success.
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