History, Evolution & Goals of Floodplain Management

History, Evolution & Goals of Floodplain Management

Floodplain management in the United States has undergone significant transformation over the past century. Initially, the nation's approach to flooding was heavily focused on structural control—building levees, dams, and floodwalls to keep water away from people. Over time, however, it became evident that structural measures alone could not prevent flood disasters. As development in flood-prone areas increased, so did the costs associated with flood damage. This realization sparked a shift toward a more holistic, comprehensive approach to managing flood risks, giving rise to modern floodplain management.

The Era of Structural Flood Control

Prior to the 1960s, the federal government's primary response to flooding was engineering. The Flood Control Act of 1936 established a federal commitment to flood control, assigning the US Army Corps of Engineers (USACE) the responsibility for constructing major public works projects. While these structures provided significant protection to many communities, they also inadvertently encouraged further development in high-risk areas. People believed that levees and dams offered absolute protection, leading to increased exposure when these structures failed or were overtopped by extreme events. By the 1960s, despite billions of dollars spent on flood control structures, annual flood losses continued to rise.

The National Flood Insurance Act of 1968

The turning point in US flood policy occurred in 1968. Recognizing that structural defenses were insufficient and that the private insurance industry could not profitably write flood insurance, Congress passed the National Flood Insurance Act of 1968. This landmark legislation created the National Flood Insurance Program (NFIP). The NFIP established a mutually beneficial agreement between the federal government and local communities: the federal government would make flood insurance available to citizens, provided that their community adopted and enforced floodplain management regulations to reduce future flood risks.

This act fundamentally shifted the nation's approach from "flood control" to "floodplain management." It mandated the identification and mapping of flood hazard areas, the establishment of minimum building standards (such as elevating structures above the base flood elevation), and the provision of subsidized insurance to existing properties. The NFIP laid the foundation for the regulatory frameworks that Certified Floodplain Managers (CFMs) work within today.

The Unified National Program for Floodplain Management

Parallel to the creation of the NFIP, a seminal report by the Task Force on Federal Flood Control Policy in 1966 recommended a broader, more integrated approach. This evolved into the Unified National Program for Floodplain Management. The Unified Program emphasized that floodplains are valuable natural resources, not just hazard areas. It promoted a mix of strategies, including:

1. Modifying human susceptibility to flood damage (e.g., through zoning, building codes, and elevation).
2. Modifying the impact of flooding (e.g., through insurance and disaster assistance).
3. Modifying flooding itself (e.g., through dams, levees, and channel alterations).
4. Preserving and restoring the natural and beneficial resources of floodplains.

This framework guided federal and state policies for decades, ensuring that non-structural measures were considered alongside traditional structural projects.

The Disaster Mitigation Act of 2000 (DMA 2000)

As the costs of federal disaster relief continued to escalate in the 1990s, the focus shifted heavily toward mitigation—taking action before a disaster strikes. The Disaster Mitigation Act of 2000 amended the Robert T. Stafford Disaster Relief and Emergency Assistance Act, emphasizing the importance of pre-disaster planning. DMA 2000 required state, local, and tribal governments to develop and adopt FEMA-approved hazard mitigation plans as a condition for receiving certain types of non-emergency disaster assistance.

This act empowered communities to proactively identify their vulnerabilities, including flood risks, and develop long-term strategies to address them. It strengthened the link between planning and funding, encouraging communities to prioritize mitigation projects before the next flood event occurred.

The Disaster Recovery Reform Act of 2018 (DRRA)

Following a series of historic disasters in 2017 (including Hurricanes Harvey, Irma, and Maria), Congress passed the Disaster Recovery Reform Act of 2018 (DRRA). The DRRA represented a monumental investment in resilience and pre-disaster mitigation. One of its most significant provisions was the creation of the Building Resilient Infrastructure and Communities (BRIC) program, which replaced the Pre-Disaster Mitigation (PDM) program. BRIC is funded by setting aside a percentage of the estimated disaster assistance provided under major disaster declarations, creating a much larger and more consistent funding stream for large-scale mitigation projects.

Primary Goals of Floodplain Management

Today, floodplain management is driven by two overarching goals:

1. Reduce the loss of life and property: This is achieved through strict building codes, elevation of structures, buyouts of repeatedly flooded properties, and robust warning systems. The objective is to ensure that when floods happen, communities bounce back quickly and with minimal human and economic loss.
2. Preserve and restore natural and beneficial functions: Floodplains naturally store and convey floodwaters, improve water quality by filtering nutrients and pollutants, recharge groundwater, and provide critical habitat for fish and wildlife. Modern floodplain management seeks to protect these ecological functions, recognizing that preserving open space in the floodplain often provides the best protection for the community.