HAZARDOUS MITIGATION PLAN
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The purpose of this plan is to assess the City of
One of the most important aspects of the Hazardous Mitigation Process is public input and involvement in the development of this plan. Input from all interested residents and businesses are vital in order to make this plan work.
Residents and Business owners are strongly encouraged to provide information to the city planning committee with any knowledge of past events, repetitive areas after storms and floods, and locations of facilities that may be impacted by storms or disasters.
For further information, please contact R. Scott Schwartz, Homeland Security
Coordinator at The City of The Hazardous Mitigation Planning Group consisted of the following
representatives: John
Picard.
Mayor
James
Burns
Executive Asst. to
Mayor
James
O'Brien
Fire Chief & CP
Director
R. Scott
Schwartz
Director of Homeland
Security 203-937-3710 Beth A.
Sabo
Public Works
Commissioner
Abdul
Quadir
City
Engineer
Ronald
Nault
Luchs
Engineering
Frank
Gladwin
Building
Official
John
Watson
Engineer
Patrick
Pickering
Inland/Wetland
Comm.
203-9376023 Eric
Triffin
Health Director
Cindy
Brelsford
City
Resident
Todd
Brelsford
City
Resident
Kathleen
Nappi
City
Resident
Joseph
Nappi
City
Resident
ResolutionWhereas, natural and man-made disasters may occur at any time, we recognize that to lesson the impacts of these disasters, we will save resources, property, and lives in the City of West Haven Connecticut And whereas the creation of a hazardous Mitigation Plan is vital for the development of risk assessment, and effective mitigation strategies And whereas the City of West Haven is committed to the mitigation goals and measures as presented in this plan. The City Council approved the following motion at a regular meeting held on Monday, March 28, 2005:
RESLOVED: That the 2005 Hazard Mitigation Plan for the City of West Haven, be adopted.
I. INTRODUCTION
A. Purpose
The primary purpose of the hazard mitigation plan seeks to prevent loss of life and to reduce damages resulting from a natural disaster and loss of services following each such disaster. Although flooding is the most frequent type of natural disaster to affect Connecticut, this plan will also assist the community in responding to other disasters, hazardous materials incidents, terrorism and other man-made events. It is important to recognize the difference between Hazard Mitigation and Emergency Operations Planning. Hazard Mitigation is broadly defined as follows: Hazard Mitigation: Any action taken to reduce or eliminate long term risk to human life and property resulting from hazards thereby also reducing or eliminating the need to respond. The goal of all emergency management activities is to prevent loss of life and property. The four phases of emergency management include: Mitigation, Preparedness, Response and Recovery. What sets them apart, is the distinction that hazard mitigation is to eliminate or reduce the need to respond. The plan identifies manpower, financial and information resources in order to facilitate funding and implementation of all hazard mitigation. Current and future grant programs for mitigation activates may require an applicant have a mitigation plan. It will also provide guidance for future capital budgeting that will be advantageous for West Haven to be in a position to implement hazard mitigation measures. Although the primary hazard in West Haven is flooding, other potential natural hazards are covered, as well as the technological hazard associated with hazardous materials for which vulnerability is increased by natural hazard occurrences. Public safety and property loss reduction are the driving force behind this plan. However, particular attention has been given to preserving the history, culture and natural environment of West Haven. Throughout the plan various hazard warning activities are discussed. Warning is not considered pure mitigation because of its lack of long-term results. Although the use of warning systems may fall under the responses phase of emergency management, for the purposes of this plan, the placement and implementation of warning systems is considered mitigation.
B. Authority
The authority to create this plan is derived from Chapter 126 of Title 8 of the Connecticut General Statutes and any and all amendments thereto and by any other public act or statute of the State of Connecticut under which the Planning and Zoning Commission may properly act or derive authority. This plan further derives authority from the Reigle Community Development and Regulator Improvement Act of 1994, Title V, (The National Flood Insurance Reform Act of 1994), Subtitle D., Section 1366(c). C. Scope/Overview
This plan has been arranged by hazard. The following sections are contained under each hazard:
* history * vulnerability assessment * existing mitigation measures * capabilities and resources * mitigation objectives and actions
II. COMMUNITY DESCRIPTION
A. Geographical
The City of West Haven is located in Southern New Haven County in South Central Connecticut. It is bordered to the North by the City of New Haven and the Town of Orange, to the East by the City of New Haven, to the South by Long Island Sound, and to the West by the City of Milford. (See Base City Map). West Haven has a total land area of 10.6 square miles rising to the North from its shoreline on Long Island Sound to an elevation of approximately 337 ft. at its Northern corporate limits. Map #5 contains a snap-shot the most prominent streams and rivers located within the limits of the City of West Haven. Descriptions of the size, location, and surrounding land use characteristics of each water body, is detailed within this plan.
West Haven is located entirely within the Connecticut Valley Synclinorium of the Iapetos Geologic Terrain of the Western Uplands. Within that terrain, in West Haven, bedrock formations are generally comprised of undivided schist’s and gneiss’s, which are a variety of light, medium and course grained silver and gray rock. Both schist and gneiss are metamorphic rocks formed by heat and pressure. The surficial geology consists mainly of thick and thin till (glacially deposited) and sand and gravel.
The weather of the area is moderated by its proximity to Long Island Sound. The average annual precipitation is 41.66 inches. The average annual snowfall is 28 inches. Temperatures range from summer highs of 90 degrees Fahrenheit (32 degrees Celsius) to winter lows of 0 degrees Fahrenheit (-18 degrees Celsius). The average annual temperature is 52 degrees Fahrenheit (11 degrees Celsius). Development of the coastal plain in West Haven has been predominantly residential in nature. However, efforts are on-going to retain those coastal resources that remain. Commercial development within the community is distributed throughout the city. Route 1, Interstate 95, Amtrak and Metro North rail lines and New Haven Harbor serve as major transportation infrastructure.
B. Cultural
The City of West Haven is an established suburban residential community with a moderate retail, commercial, and industrial base. The industrial base has a diversified variety of manufactured products including Cipro, the antibiotic of choice for treatment of anthrax exposure, manufactured by Bayer Pharmaceutical. West Haven is also the home to a United States Veterans Administration Hospital and Healthcare System, and Northeast Blind Center for Veteran’s . Annual patient and out-patient visits for the system totaled over 450,000 in 2004.
According to the State Department, the city’s population as compiled by the U.S. Census Bureau, was 52,360 ranking the city 5th in population density (5025 persons per square mile), greatest near the center of town, and is the 16th largest city per capita in the State of Connecticut. The southern part of West Haven is located on Long Island Sound, and has the distinction of the state’s largest stretch of public beach at 3.2 miles. The City of West Haven is located approximately 75 miles from New York City.
West Haven was first settled in the mid 1640’s as a part of the New Haven Colony. In 1719 West Haven became the separate parish of West Haven until 1822 when it joined North Milford to form the Town of Orange. In 1921 it incorporated as a separate town, and in 1961 it incorporated as a city. There are currently 21,090 occupied housing occupied units in West Haven. Approximately 9,458 are renter occupied units. There are four elderly housing units located throughout the city. All elderly housing units are controlled by the West Haven Housing Authority.
West Haven’s close proximity to New Haven, its fine education system, its cultural events, easy access to rail, air and highway transportation, and its location along Long Island Sound have been, and continue to be the driving forces behind people’s desire to live here.
C. Demographic ProfileCity of West Haven, Connecticut General Characteristics Number Percent Total Population 52,360 100.0 Male 24,995 47.7 Female 27,365 52.3 Median Age (years) 36.4 (X) Under 5 Years 3,270 6.2 18 Years and over 40,252 76.9 65 Years and over 7,442 14.2 One Race 50,901 97.2 White 38,824 74.1 Black or African American 8,530 16.3 American Indian and Alaska Native 128 0.2 Asian 1,525 2.9 Native Hawaiian and Other Pacific Islander 27 0.1 Some other race 1,867 3.6 Hispanic or Latino (of any race) 4,757 9.1 Two or more races 1,459 2.8 Average Household size 2.42 (X) Average Family size 3.06 (X) Total Housing units 100.0 Occupied Housing units 21,090 94.4 Owner-occupied Housing units 11,632 55.2 Renter-occupied Housing units 9,458 44.8 Vacant Housing units 1,246 5.6 Social Characteristics Population 25 Years and over 35,341 100.0 High School graduate or higher 28,609 81.0 Bachelor’s degree or higher 6,739 19.1 Civilian Veterans (civilian population 18 years and over) 4,839 12.0 Disability Status (population 21 to 64 years) 6,042 19.7 Foreign Born 5,953 11.4 Now Married (population 15 and over) 19,916 47.2 Speak a Language other than English at home (5 years and over) 8,920 18.1 Housing Characteristics Single Family owner-occupied homes 9,586 100.0 Median value (dollars) 118,600 (X) Median of selected monthly owner costs (X) (X) With a mortgage 1,279 (X) Not mortgaged 528 (X) D. Governmental Structure West Haven is governed by a City Council. The Mayor is the Chief Executive Officer of the community. The various city departments, boards and commissions which may play a role in implementing this plan are as follows: Planning and Zoning, Emergency Management, Public Works/Engineering, Building, Flood and Erosion Control, Corporation Counsel, Parks and Recreation, Police and Fire. The American Red Cross and Health Department are also involved in activities related to Hazard Mitigation and Emergency Management.
The Planning and Zoning Department enforces the local zoning and subdivision regulations, provides staff assistance to the planning and Zoning Commission, and performs long term planning activities related to land use and community development. This department drafts, updates and implements the goals and objectives of the city Plan of Development.
The mission of the Emergency Management Office is to maximize survival of people, prevent and/or minimize injuries, and preserve property and resources in the city by making use of all available manpower, equipment, and other resources in the event of natural or technological disasters or national security threats. In addition to coordinating activities during disasters, the Emergency Management Office coordinates activities during disasters, the Emergency Management Office coordinates all early warning activities and is involved in educating the public on how to react during emergency situations. The West Haven Police Department, and the city’s three independent fire districts; Center District, Allingtown District, and West Shore District play vital roles in assisting the Emergency Management Office with coordination of emergency activities.
The Public Works and Engineering Department provides engineering staff support to the various city boards and takes a lead role in enforcing the storm water management policy. Additional activities of this department include storm water structure design and maintenance, assistance with CRS related activities, assistance to the Flood & Erosion Control Board and Conservation Commission with enforcement of the Waterway Protection Line Ordinance, snow removal, installation and regulation of tide gates and oversight of city infrastructure projects and road projects. During and immediately following emergency situations the departments assists with many recovery activities. A complete list of services provided by Public Works/Engineering is provided in the West Haven Emergency Operations Plan (EOP). Through the zoning regulations, the Planning and Zoning Commission enforces the National Flood Insurance Program (NFIP) standards and tracks the activities required for West Haven’s participation in the NFIP Community Rating System (CRS).
The CRS was developed by FEMA to provide the opportunity for communities, such as East Haven, who support a local program that exceeds the minimum requirements of the NFIP to obtain reduced flood insurance premium rates for their citizens. The program awards credit points for specified flood management activities and extends premium discounts based on the number of points accumulated.
The Building Department’s primary responsibility is enforcing the building code. Many areas of the building code deal directly with hazard mitigation by providing standards for wind, flood, and fire protection as well. The primary role of the Building Department during disaster situations is to provide damage assessment, inspect damaged buildings and issue permits for temporary structures and actions necessary to maintain safety standards. A comprehensive list of the Building Department’s emergency responsibilities is provided in the City of West Haven’s Emergency Operations Plan (EOP).
The Flood and Erosion Commission’s role in hazard mitigation is very important. Wetlands preservation is one of the purest forms of hazard mitigation due to the natural functions and values of wetlands, including stream bank and shoreline stabilization, and flood water storage. In this capacity the commission administers the Waterway Protection Line Ordinance in conjunction with the Flood and Erosion Control Board, the Inland Wetlands and Watercourses Regulations, and the Aquifer Protection Regulations.
The Parks and Recreation Department oversees city owned open space parks. This responsibility would likely include any properties acquired by the town for hazard mitigation purposes and converted to open space. This department’s responsibilities during emergencies are also outlined in the EOP. In addition to open space properties managed by the Parks and Recreation Department, there are non-profit organizations active in acquiring and preserving environmentally sensitive land in West Haven. Some properties held by these organizations contain wetland and floodplain areas.
The city’s Grants Coordinator’s office plays a critical role in hazard mitigation by administering the grant applications and projects under the federal (post-disaster) Hazard Mitigation Grant Program. That role is expected to carry over to the newly enacted, federal, pre-disaster Flood Hazard Mitigation Assistance Grant Program.
In addition to the city offices, other groups such as the American Red Cross provide services related to both mitigation and emergency management. The American Red Cross helps provide shelter and other vital services during disasters and participates in many public education activities prior to disasters occurring. The Health Department also regulated several types of businesses, which include operations that are potential threats to public water and the environment. It maintains a list of residents who require assistance during emergencies.
E. Development Trends The land use plan of a community reflects the goals and objectives of the community. It is based upon realistic expectations as well as environmental conditions. The plan reflects a balance between respect for private property and achievement of public welfare. In the formulation of the land use plan for West Haven, it was important to identify those factors, which are the major influences on land use. The following are the primary considerations in the formulation of a land use plan for West Haven: 1. West Haven is a coastal community with a long shorefront on Long Island Sound. The shoreline is a unique asset to the community, and a strong source of community identity.
2. The overall land use pattern of West Haven is generally established. Although certain development opportunities exist through the city, the focus of the land use plan in most of the city should be on either maintaining or improving the existing patterns of development.
3. Analysis has found that under current zoning, there is potential for a population of 58,000. The recent trend has shown about a 8 percent population decrease over the last 10 years.
4. The residential neighborhoods are fundamentally sound. The primary potential threat to many residential areas is adverse impacts for incompatible land uses.
5. Extensive areas of the city are subject to river or coastal flooding, including many developed areas.
6. The water and sewer systems of West Haven are capable of supporting any growth, although necessary updating of the sewer system is required in the near future. All public facilities and utilities are not constraints to growth.
7. Some of the vacant land in West Haven contains some environmental constraints to development. In some areas, the environmental constraints are significant enough to prevent development, while in others they may be included within a well designed development plan.
8. West Haven needs redevelopment of certain areas that will enhance, and support economic growth, and the identification of areas capable of supporting growth is a priority of the city. Most of the areas potentially appropriate for economic growth have some constraint to development, so it is important to identify methods of overcoming those constraints, if possible.
9. West Haven does not have a strong single dominant business center. Instead, commercial and industrial activity is located in several locations within the city boundaries.
III. Hazard Identification A. Definitions of HazardsThe following are definitions used within the City of West Haven Hazard Mitigation Plan. 1. Flooding Floods are defined as a temporary overflow of water onto lands that are not normally covered by water. Flooding results from the overflow of rivers and tributaries, storm surges, and / or inadequate local drainage. Floods can cause loss of life, and property damage. Floods can also disrupt travel routes on roads and bridges. Inland floods are most likely to occur in the spring due to the increase in rainfall and melting of snow; however, floods can occur at any time of year. A sudden thaw in the winter or a major downpour in the summer can cause flooding because there is suddenly an excess of water in one place with nowhere to go. Hurricanes A hurricane is a tropical cyclone in which winds reach speeds of 74 miles per hour or more and blow in a large spiral around a relatively calm center. Flooding is often caused from the coastal storm surge of the ocean and torrential rains, both of which accompany the storm. These floods can result in the loss of lives and property. 100-year Floodplain Events Floodplains are usually located in lowlands near rivers, and flood on a regular basis. The term 100-year flood does not mean that a flood will occur once every 100 years. It is a statement of probability that scientists and engineers use to describe how one flood compares to others that are likely to occur. It is more accurate to use phrase “1% annual chance of flood”. What it means is that there is a 1% chance of a flood of that size happening in any year. Rapid Snow Pack Melt Warm temperatures and heavy rains cause rapid snowmelt. Quickly melting snow coupled with moderate to heavy rains are prime conditions for flooding. River Ice Jams Rising waters in early spring often break ice into chunks, which float downstream and often pile up, causing flooding. Small rivers and streams pose special flooding risks because they are easily blocked by jams. Ice in riverbeds and against structures; such as tide-gates present significant flooding threats to bridges, roads, and the surrounding lands. Dam Breach and Failure Dam failure results in rapid loss of water that is normally held by the dam. These kinds of floods are extremely dangerous and pose a significant threat to both life and property Severe Storms Flooding associated with severe storms can inflict heavy damage to property. Heavy rains during severe storms are a common cause of inland flooding. 2. Wind Significantly high winds occur especially during hurricanes, tornadoes, winter storms, and thunderstorms. Falling objects and downed power lines are dangerous risks associated with high winds. In addition, property damage and downed trees are common during high wind occurrences. Hurricanes A hurricane is a tropical cyclone in which winds reach speeds of 74 miles per hour or more and blow in a large spiral around a relatively calm center. The eye of the storm is usually 20-30 miles wide and may extend over 400 miles. High winds are a primary cause of hurricane-inflicted loss of life and property. Tornadoes A tornado is a violent windstorm characterized by a twisting, funnel shaped cloud. They develop when cool air overrides a layer of warm air, causing the warm air to rise rapidly. The atmospheric conditions required for the formation of a tornado include great thermal instability, high humidity, and the convergence of warm, moist air at low levels with cooler, drier air aloft. Most tornadoes remain suspended in the atmosphere, but if they touch down they become a force of destruction. Tornadoes produce the most violent winds on earth, at speeds of 280 or more. In addition, tornadoes can travel at a forward speed of up to 70 miles per hour. Damage paths can be in access of one mile wide and 50 miles long. Violent winds and debris slamming into buildings cause the most structural damage. The Fujita Scale is the standard scale for rating the severity of the tornado as measured by the damage it causes. A tornado is usually accompanied by thunder, lightning, heavy rain, and a loud “freight train” noise. In comparison to a hurricane, a tornado covers a much smaller area but can be more violent and destructive.
Nor’easters A Nor’easter is defined as a large weather system traveling from south to north, passing along or near the seacoast. As the storm approaches New England and it’s intensity becomes increasingly apparent, the resulting counterclockwise cyclonic winds impact the coast and inland areas from a northeasterly direction. The sustained winds may meet or exceed hurricane force, with larger bursts, and may exceed hurricane events by many hours (even days) in terms of duration.
IV. Hazard, Flooding
A. History 1. Shoreline The shorefront of West Haven is somewhat varied, and contains most categories of coastal resources found in Connecticut. a) Beaches and Dunes are defined in the CMA as “beach systems including barrier spits and tombolos, barrier beaches, pocket beaches, land contact beaches and related dunes and sandflats; Spits are projections of sand attached at one end to an island or the mainland but are separated from it by a body of water or marsh.
Beaches have been further described as moderately sloping shores composed of water worked sand, gravel or cobble deposits, or areas of sandy beach fill. The beach is located between mean low water and bluffs/escarpment. Dunes consists of wind deposited sands positioned landward of and elevated above the beach. Beaches are generally considered to be erosion prone, but they were initially formed by the deposition of sand by currents and wave action. The characteristics of the beach are a result of the balance between erosion and depositional forces. Beaches are found along much of the West Haven shoreline. These physical descriptions are an example of the varying beach areas along the shorefront. There is a spit at the west side of Bradley Rock that extends eastward towards Oak Street Beach, and a small pocket beach approximately 600 feet to the west at Bradley Point, where the Cove River empties into Long Island Sound. From the Sea Bluff area, Beach extends approximately one mile west to South Street. Another stretch of beach extends 1 ½ miles east from the east side of Bradley Point to Sandy Point. There is a also small beach area at Baybrook just steps east of Oyster River. b) Modified Beaches and Dunes are defined by the CMA as “beach systems temporarily stabilized by an erosion control structure positioned between the dune ridge and the beach.” The erosion control structure may be a seawall, revetment or bulkhead. Modified beaches and dunes are also considered to be erosion prone. The effectiveness of the stabilization structures varies, but generally stabilization structures are effective in either slowing the erosion process or shifting it to another area of the shoreline, rather than elimination. Therefore, erosion control is most effective when used to protect small areas of developed shorefront. There is one stretch of beaches and dunes in West Haven. It extends from the base of Washington Avenue eastward to a point west of Morse Avenue. There is intensive residential development along this beach, fronting on the south side of Beach Street. c) Modified Bluffs and Escarpments are “coastal bluffs and escarpments that have been temporarily stabilized by erosion control structures (revetment, bulkhead or seawall) positioned seaward of the marine cliff or escarpment.” Coastal bluffs and escarpments are steep seaward sloping marine cliffs. The modified bluffs and escarpments along the West Haven shore primarily consist of stone seawalls several feet high which separate some stretches of the shorefront from residential development. There is a small area of modified beach and escarpment near the base of South Street, abutting the homes along that stretch of Ocean Avenue. The largest stretch of modified bluff and escarpment is west of South Street to the east side of Aimes Point. d) Rocky Shorefronts are defined by the CMA as “shorefronts composed of bedrock, boulders and cobbles that are highly erosion resistant and are an insignificant source of sediments for other coastal landforms.” Rocky shorefronts may include nearly vertical rock cliffs, or gently seaward sloping rock and boulder lands. The largest extent of rocky shorefront in West Haven is along the tidal section of the Cove River. Other small areas of rocky shorefront are located just west of the end of South Street, and west from Woody Crest to Nashewena Avenue. A small “pocket beach” also sits at Nashewena Avenue. e) Islands are defined in the CMA as ‘a land mass of bedrock or till encircled by coastal waters’. The only mapped island within the West Haven coastal area is Bradley Rock, a small rock island approximately 900 feet offshore Sea Bluff Beach. f) Tidal Wetlands include areas both designated and undesignated. Designated wetlands are those wetlands that have been inventoried and mapped by the State Department of Environmental Protection as defined by vegetation and are subject to the state Tidal Wetland Regulations. Undesignated tidal wetlands include other areas with wetland vegetation that are unmanned. They have been unregulated by the State Tidal Wetland Program, until passage of recent amendments (Public Act 91-308) to the Connecticut Tidal Wetlands Act, which requires that undesignated tidal wetlands also be regulated. Tidal wetlands encompass tidal marshes and tidal mudflats. Both are result of the accumulation of fine sediments. Tidal marshes are formed when the sediments accumulate as high as the mid-tide level, which is the intermediate point between high and low tides. Tidal mudflats are where the sediments are below the mid-tide elevation. Generally, tidal marshes are vegetated, while tidal mud flats are not. Tidal wetlands have been considered by the State and Federal governments worthy of special attention for the following reasons; *Marine Food Production - Tidal Wetlands are one of the most productive of the world’s ecosystems. Two-thirds of all commercially harvested fish and shellfish depend on the marsh-estuarine system at some point in their life cycle. *Wildlife Habitat - Tidal wetlands are important as breeding, nesting and feedinggrounds. *Flood Control - The serve as a natural buffer, protecting upland and developed areas from storm tides and absorbing wave damage. *Recreation - Tidal wetlands provide opportunities for hunting and fishing. *Pollution Control - Tidal wetlands serve as an important basin in which organic pollutants are filtered and converted to nutrients. *Sedimentation - Tidal wetlands absorb silt and organic matter which otherwise would obstruct channels and harbors.
West Haven still has extensive areas of tidal wetlands, located primarily along the creeks and rivers as they empty into the Sound. The largest area of tidal wetlands is along Old Field Creek and the Cove River. Old Field Creek especially in the area north of Beach Street to Blohm Street, Andersen Avenue, First Avenue, Jones Street, Marshall Street, Leete Street, and Peck Avenue. Blohm Street is the lowest point at which adverse flooding could occur, at elevations 4.8 feet NGVD. There are also extensive tidal wetland areas along the Cove River extending north from Captain Thomas Blvd. to Painter Drive and Main Street, and north away from the floodplain. These areas exhibit a significant amount of flooding during heavy rains in a short period of time, thus creating extensive risk of loss and damage of personal, and real property. (Reference floodplain maps)
Water Quality
The salinity of Long Island Sound varies considerably. The degree of salinity tends to increase to the east, although the salinity within the near-shore waters decreases in areas where large freshwater rivers empty into the Sound, such as the Connecticut and Housatonic Rivers.
The flow of freshwater into the Sound has little direct effect on the salinity of West Haven Coastal waters. The bottom salinity in West Haven coastal waters is 24-26 parts per thousand, while the surface salinity is 22-24 parts per thousand.
The State Department of Environmental Protection has established a goal that the coastal water of West Haven identified of a quality to be classified as SB. SB waters are considered suitable for use as a marine fish, shellfish and wildlife habitat; recreation, industry and other legitimate uses including navigation. Most West Haven coastal waters and waters including the outer sections of New haven Harbor, are classified as SC, which is defined as being impaired as to one or more quality criteria or for one or more of the following uses; habitat for marine fish, shellfish or wildlife; recreational boating, industrial and other legitimate uses, including navigation and swimming.
Shellfish Beds
Shellfish are important coastal resources of the State. The shallow embayment of the sound is the most productive shellfish habitats.
New Haven Harbor is one of the prime shellfish habitats along the Connecticut shore, with a heavy concentration of shellfish beds. The growing conditions of the harbor, in terms of water temperature, salinity and other factors are ideal. The habitats are also ideal in that there are large areas of shallow, quiet water. There is a large shellfish bed at the southeastern and southwestern mouth of the harbor, just offshore Anderson Avenue west to just offshore Lake Street Beach.
Most of the shellfish concentrations in West Haven water are beds of eastern oysters. The eastern oyster requires a hard substrate for attachment.
Unfortunately, due to poor water quality, the shellfish beds of West Haven waters are closed to recreational and direct commercial harvest. The only way in which the shellfish can be utilized is through commercial “relay,” which is the harvest form these beds and the transplant to areas of cleaner waters for filtering for several weeks, at which time they may be sold.
As stated previously, the water quality of West Haven waters vary, and the shellfish concentrations that are farthest off shore, are at times almost clean enough for direct harvesting. An upgrade of general water quality may open some shellfish concentration areas to direct harvest.
West Haven experiences significant coastal flooding associated with hurricanes and tropical storms. The city has shared in the devastation of all the major storms, which have struck Long Island Sound in the past century. The greatest level of flooding was experienced with the hurricane of September 21, 1938. Water elevations of 10 feet above sea level were recorded in West Haven. In September of 1944 a hurricane hit the Connecticut coast again resulting in moderately high tides. In August of 1954 Hurricane Carol struck the Connecticut coast. The hurricane surge with this storm added five to eight feet of water on top of the normal high tide resulting in the greatest damage recorded.
The wave damage was generally worse to the east of New Haven. In the following year, 1955, residents saw the torrential rains resulting from the back-to-back Hurricanes Connie and Diane.
In more recent memory, flooding and winds associated with hurricanes and storm events have caused extensive shoreline erosion and related damages. Hurricanes Gloria and Bob caused very little water damage but resulted in extensive wind damage. Tropical and extra tropical storms have produced periods of locally heavy rainfall. These events have been recorded on June 4-7, 1982, May 16, 1989, October 31, 1991, December 10-12, 1992 and May 27-June 2, 1994. Emergency Management records show that widespread street and storm drain system flooding were associated with these events producing significant basement flooding.
Other nor’easters and blizzards have also resulted in coastal and river flooding. Some of these events that resulted in multiple National Flood Insurance Program damage claims were in February of 1987, March of 1978, January of 1979, March of 1980, and March of 1984. Also, in December of 1992 the nor’easter storm named Beth brought high waters and significant damage to coastal areas.
2. Rivers & Streams
The Cove River is the principle river running through a large portion of the City of West Haven. Over the years as rain exceeded the 100-year storm; numerous homes have been flooded along with businesses and other buildings. The city has experienced many storms be they nor’easters, hurricanes or just spring rains that have caused major flooding. The Cove River is part of the South Central Shoreline Drainage Basin No. 5000 as categorized by the Connecticut Department of Environmental Protection (CTDEP). The surface and ground water quality is classified SB/SA and GB, Respectively. Bowe – Walsh Associates contains a full description of the Cove River watershed topography and land use in Appendix B from excerpts of the 1977 Master Drainage Study performed. (Reference Cove River basin map)
The Cove River Drainage Basin is composed of a large area embracing the entire central portion of the City of West Haven, and a much smaller area located in the Town of Orange. The basin is bordered on the south by Long Island Sound; on the west by a ridge line from Jones Hill Road across Shingle Hill Road to Railroad Avenue, a ridge line from Railroad Avenue through the Connecticut Turnpike (I-95) and Sawmill Road to Orange Avenue, and a ridgeline from Orange Avenue thru the Town of Orange to Derby Avenue; on the north by Derby Avenue; and on the east by a ridge line from Derby Avenue along Fenwick Street to Orange Avenue, a ridge line from Orange Avenue across Terrace Avenue, and West Spring Street to the Connecticut Turnpike. Also Highland Street, Fern Street, York Street, Clark Street, and a ridge line from Campbell Avenue across Elm Street to Savin Avenue, and a ridge line from Savin Avenue parallel to Kelsey Avenue and across Captain Thomas Boulevard to the Long Island Sound.
There are five major state highways within the Cove River Drainage Basin. The Connecticut Turnpike (I-95) divides the basin into roughly two equal areas. The topography of the Cove River as identified in a composite United States Geological Survey map of the Cove River Drainage Basin is characterized as gently rolling terrain. The Cove River is Located approximately in the middle of the basin with relatively average to steep slopes along the ridge lines, and relatively flat slopes in the Cove River’s floodplain. The flat ground slopes essentially offer no range in ground elevation. The soils exhibit good drainage characteristics, which are conducive to relatively low runoff rates.
The high runoff from areas surrounding the swamp, which eventually drain into the swamp, work in conjunction with the considerable natural retention offered by this area that result in local flooding. The flat terrain of the Cove River floodplain has resulted in local flooding in the portion south of Main Street to Painter Avenue. The tidal influence, flat nature, and the riverbed itself are major contributors to the serious flooding and drainage problems in this portion of the basin. Some homes were built in the floodplain of the Cove River during the early 1970’s
The river will continue to pose a flooding hazard until additional corrections are made. To date three engineering studies have been completed involving both state DEP, and local government.
3. Inland Wetlands
The State of Connecticut has recognized the importance of freshwater or inland wetlands and the problems caused by their destruction through the adoption of PA 72-155, which established standards and procedures for the protection of inland wetlands. Inland wetlands are also protected to a certain extent by the Federal government through the Environmental Protection Agency and the Army Corps of Engineers as a result of the Clean Water Act. Locally, in West Haven, wetlands regulations are administered by the Inland Wetlands Commission.
The State of Connecticut has defined wetlands by soil type. They are soils designated as poorly drained, very poorly drained alluvial and floodplain by the National Cooperative Soils Survey of the US Department of Agriculture Soil Conservation Service.
Wetlands serve a variety of functions that make them valuable components of a community. The serve an important function in their capacity to control flooding, by acting as ‘sponges.’ As precipitation is absorbed by the wetlands, runoff into streams and river channels is reduced, which decreases the potential flood hazard downstream. Another important function of wetlands relates to the quality of surface and ground water. Wetlands can improve water quality in a number of different ways. The soils can physically absorb the contaminants, removing them from the water. In addition, vegetation can remove nutrients and other contaminants throughout the root system. Wetland areas left in their natural state can be important components of a community as open space. As open space, the wetlands can be part of the effort to preserve or maintain the remaining lands in their natural state in the community. They can also be significant wildlife habitats. Very often, wetland areas support very diverse species of flora and fauna. Wetland areas are generally very productive in this regard, offering food and shelter to animals. The enclosed map shows the wetlands of West Haven according to official sub-regional Watersheds illustration. (Map #3). It indicates that most areas are located along the city’s watercourses. There are also many smaller wetland areas of differing characteristics located throughout the city. Many of the wetlands have been developed upon or otherwise altered. However, much of the wetlands retain certain natural characteristics that make them important components of the storm drainage and natural ecosystems.
4. Water bodies Maltby Lake is West Haven’s largest body of freshwater just east from the Town of Orange. The area covers 871 acres of land and 72 acres of water, and is confined by two north-south running ridges. Maltby Lakes numbered 1,2 and 3 east to west, are relatively small with 1.3 square miles of watershed. The diversion of Trout Brook adds 0.8 square miles of watershed and the Wepawaug diversion another 7.7 square miles. The primary source of protection problems in the Maltby system relate to the major roads that pass through the watersheds. Its maximum depth is 31 feet. Two watercourses have been diverted into the reservoir to increase its supply of water. There are two dams located at Maltby Lake. These dams would pose a significant hazard of downstream flooding in the area’s north, south and east of the lakes, should there be a break in the structure. Maltby lakes contain approximately 260 million total gallons. This reservoir has not been used as a water source since the early 1980’s, and there is currently no plan to utilize this watershed for the next 20 years. This area now serves as recreation tract, and is being monitored and maintained by the Regional Water Authority. (Reference Maltby Lakes map) Lake Phipps is West Haven’s second largest lake covering a total surface area of approximately 24.5 acres at the historic water surface elevation on 59.9 feet. Three separate dams, known as dam #1, dam #2, and dam #3, impound the lake. It is believed the lake was created to generate a source of drinking water for local residents; however, there is no indication that the lake was ever used for this purpose.
Dam #1 is the largest of the dams and consists of an earthen embankment with a stone masonry core wall. Dam #2 is a stone masonry retaining wall reinforced by stone masonry and concrete buttresses. Dam #2 also is the location of the existing emergency spillway. Dam # 3 is a small earthen dam with two 15” pipes extending through the dam. These pipes are the normal outflow from the lake and eventually feed the Cove River. These Dams pose a serious threat to residential, commercial and public structures located downstream. Most notably a special needs school and an apartment complex downstream of dam #1. Should a catastrophic storm event occur and the dams were to fail, there is a high potential for the loss of human life and valuable property. (Reference Lake Phipps map)
All of the inflow into Lake Phipps occurs from storm water runoff. There are five locations of storm drainage piping entering into the lake; the intersection of Allings Crossing Road and West Main Street, the intersection of Allings Crossing Road and Phipps Drive, two large culverts under the railroad tracks servicing the Metro North and Amtrak lines, and also significant drainage from the Interstate 95 corridor southwest of Phipps Drive, approximately 400 feet from the intersection of Allings Crossing Road, and at Phipps Drive west of Shady Lane. 5. Drainage Basins Drainage basins are based upon a river or other principal watercourse. They are defined as all land that drains into the watercourse. Overall topographical characteristics, and the proximate coastal water body define coastal areas that are not drained by major rivers. The largest category of drainage basins is the Major Drainage Basins. These are relatively large areas drained by major rivers and watercourses. All of West Haven is within the South Central Coast Major Basin. The basin encompasses 485.5 square miles extending along the coast of Long Island Sound from Milford to Old Saybrook and as far north as Farmington and New Britain. The Housatonic Major Basis is to the west and the Connecticut River Basin is to the east. The tributaries of the major watercourses define Regional Basins. Sections of West Haven are within three drainage basins. Most of the city, except the extreme southern and eastern areas, is within the South Central Eastern Complex, which encompasses 176.5 square miles between West Haven and Old Saybrook, as far north as Durham. The Quinnipiac Regional basis includes the southeastern areas of West Haven. This regional basin encompasses 169.6 square miles extending north from New Haven Harbor into the New Britain-Farmington area. The minor drainage basins are based upon specific rivers, streams or other water bodies. West Haven includes sections of four minor basins, two within the Quinnipiac Regional basin and one within the South Central Eastern Complex. The South central Shoreline regional basin is not subdivided further into minor basins. 6. Floodplains Floodplains are low land along watercourses that are subject to periodic flooding. A 100-year flood is a flood that has one percent probability of occurring in a given year. The extent and boundaries of the floodplains have been determined b the Federal Emergency Management Agency, (FEMA). Floodways are those areas within the floodplains that convey the floodwaters. The floodways are subject to water being carried at relatively high velocities and forces. The floodway fringe are those areas of the floodplain outside of the floodway which are subject to inundation but do not convey the floodwaters. Development or alteration of areas within the 100 year floodplain area are restricted by local regulations. Development activities that may be permitted must conform with standards related to safety and the impact on floodwaters. Generally, development within the floodway fringe is permitted if it is adequately flood-proofed, and has a base floor elevation above the level of the 100-year floodplain, while development within the floodway is more restricted. These standards have been incorporated within city regulations. They have been adopted to be in compliance with FEMA regulations, so that properties in city are eligible for federally sponsored flood insurance. The West Haven floodplains include large areas that have been developed. The residential areas within the coastal hazard areas along Beach Street, Blohm Street, and continue north to Third Avenue, Peck Avenue, White Street and Marshall Street are within the Old Field Creek area. During a study that was prepared for the City of West Haven and the Connecticut Department of Environmental Protection Office of Long Island Sound Programs, and was conducted by Milone & MacBroom, Inc., studied the Old Field Creek Area. The Old Field Creek drainage basin lies entirely within the southeastern portion of the city and spans approximately 390 acres. The study area for Old Field Creek begins at its outlet to Long Island Sound, and extends upstream to Peck Avenue. This stretch of river includes approximately 3,600 feet of channel upstream of the tide-gate structure and 500 or so feet of the channel downstream of the tidegate structure. Conditions at the Old Field Creek outlet are quite complex. The stream is controlled by tide-gates located at Beach Street that act to restrict tidal flow. Downstream of the tide-gate structure, water flows through a timber jetty into a lagoon that has formed between Morse Point and the shoreline, and then out to Long Island Sound. This combination of outlet control features limit the tide range in Old Field Creek and are key elements both in restoring the marsh and in providing coastal flood protection. At high tide, water pressure closes the flap gates preventing upstream flow of salt water and temporarily trapping fresh water runoff upstream of the tide-gates. The artificially high level of mean low water prevents Old Field Creek from draining normally at low tide. As a result, portions of the original marsh peat remain saturated for the full tidal cycle, with reduced aeration. Periodic flooding of the residential areas along the Old Field Creek area has continued for many years due to the complexity and the existing conditions and deficiencies in this floodplain area. There have been several plans to alleviate flooding along the city’s rivers and streams. Several drainage studies have been done, with most recommending channel and culvert improvements. In the past, the physical alteration of a river through the construction of dams and levees was the standard response to a flooding problem. As was illustrated during the summer of 1994 in the Mississippi valley, these manmade physical controls cannot be relied upon. They are also relatively expensive, sometimes costing more to construct than the value of the property that they were intended to protect. That is why the contemporary philosophy, as embodied in floodplain regulations is to prevent inappropriate development form occurring within the floodplain. Unfortunately, much of the situation in West Haven is somewhat problematic, as much development has already occurred within flood-prone areas. In fact, while current federal policy and regulations restrict to some extent new development in the floodplain, their overall impact is to maintain the level of the existing development there through the flood insurance program. The national flood insurance program will pay for repairs to a structure in a flood-prone area numerous times that encourages property owners to keep improving structures in the floodplains. The flood insurance pricing system also does not differentiate between the different levels of risk. Therefore, a property owner who is damaged by floods annually pays the same premiums as a property owner who is located in a relatively low risk section of the floodplain. The policies are essentially the same as those dealing with coastal hazards. The unintended consequences of these policies have been coming into greater attention lately with the unusual number of natural disaster occurring in recent years. There has been some discussion of altering these policies. One way in which this might be done is for the Federal government, through the Flood Insurance Administration, to purchase property subject to ongoing flood damage rather than just pay for repairs, which would probably be less expensive for the Federal government over the long run. This has been done to some extent. For example, after the Mississippi floods, an entire town in Illinois was rebuilt as a different location out of the floodplain. 7. Groundwater Drinking water in the State of Connecticut has been supplied through a combination of surface water reservoirs and groundwater wells. The State has a vast amount of groundwater that potentially is able to supply the State’s water needs into the future. Water-bearing materials known as aquifers underlie the State. An aquifer is defined as any set of geological conditions that allows for the withdrawal of water from the ground in useable quantities. Although most of the water used by West Haven residents and businesses comes form surface water supplies of the Regional Water Authority, groundwater wells are a supply source of the RWA. Groundwater is the result of precipitation, which has been absorbed into the ground. Water in the ground may either be returned to the atmosphere through evaporation and transpiration, or it may percolate downward to the water table and eventually become part of the groundwater. At any particular time, this groundwater may be held in place or move down gradient to springs, streams, wetlands, and lakes. It can also be transported back to the surface through wells and serve as a supply of drinking water. Even through West Haven’s groundwater is not a direct source of drinking water, the quality of these waters is relevant. According to the Department of Environmental Protection, as set forth in the Water Classification Map of Connecticut, the groundwater in West Haven is classified, GA GAA and GB/BA, which indicates that its present condition is GB with a goal of restoration to GA. The definitions of these classifications according to the DEP are as follows: GA Groundwater within he areas of influence of private and potential public water supply wells. Presumed suitable for direct human consumption without the need for treatment. (Designated Uses: Existing private or potential public drinking water supply).
GAA Groundwater within public water supply watersheds or within the area of influence of community and non-community water supply wells. Presumed suitable for direct human consumption without need for treatment. (Designated Uses: Existing or potential public drinking water supply).
GB Groundwater which may not be suitable for direct human consumption without need for treatment due to waste discharges, spills or leaks of chemicals or land use impacts. (Designated Uses: Industrial process water and cooling waters, presumed not suitable for direct human consumption without treatment).
The quality of groundwater is affected by land use and activity on the land above the aquifer. A pollutant will tend to move with the natural flow of the groundwater through the underlying soil and bedrock. In time and over distance, pollutants will decrease in concentration as a result of dilution, decay absorption and death of bacteria. The sources of groundwater pollution are extremely varied. Sanitary landfills, road salt storage and application, leaks and spills of petroleum or other chemicals, industrial or commercial waste disposal, septic systems, land disposal of septate and sewage sludge and some agricultural practices are all potential sources of groundwater pollution.
Public Act 89-305 is a recent initiative of the State of Connecticut to preserve the quality of the drinking water. The law requires that public and private water companies serving more than 1,000 persons prepare maps delineating the recharge areas for wells using stratified drift aquifers. The Department of Environmental Protection is required to formulate regulations for land uses in these designated recharge areas. These regulations are to include best management practice standards for land uses in these areas, including standards for existing regulated activities and a compliance schedule for nonconforming activities. No land will be directly affected by this law in West Haven, as there are no public water groundwater supplies.
B. Vulnerability Assessment
Since flooding is the most prevalent hazard to which West Haven is exposed, substantial amounts of both scientific and historical information are available.
1. Old Field Creek, and coastal areas, including but not limited to; a. Beach Street b. Blohm Street c. Main Street d. Marshall Street e. May Street f. Pagano Court f. Painter Avenue g. Peck Avenue h. Third Avenue
2. Cove River, and areas including but not limited to;
a. Covebrook Road b. Main Street c. Homeside Avenue d. Painter Drive e. West Spring Street
Flooding of the Cove River watershed within the City of West Haven has always been a very serious concern. There are many residences, businesses, and municipal properties, including a Special Needs School, which are within the flood plain of a 100-year frequency storm. Several studies of the Cove River were prepared in the 1970’s – 1980’s, culminating in the construction of channel improvements, selected areas of floodway clearing, and the institution of the Federal Flood Insurance Program.
In 1977 a Master Drainage Study was performed by Bowe – Walsh Associates. In this Section, the broad goals and objects which have been identified for furthering flood damage reduction are set forth. Following each goal or objective, specific actions for implementation have been identified.
The following goals, objectives and actions for flood mitigation have been identified:
1. Education Objectives - Many West Haven home and business owners have not been here long enough to experience major flooding, (such as the flood of 1950). Because many property owners have indicated that they have experienced flooding, they may mistakenly believe that the routine street flooding abnormally high tides they have witnessed represent the extent of the effects of flooding in West Haven. The 1992 coastal storm may have somewhat dispelled this myth. However, much worse storms could affect West Haven. Given the intense development of the shoreline since 1955, a similar storm would have a much worse effect.
Public education in the areas of storm damage potential, mitigation activities, and preparedness have been identified as the top priority for flooding and each of the other hazards. West Haven is currently implementing a Citizen’s Action Group to assist public awareness, and create an intensive and effective public education campaign.
In addition to educating the public, professional groups such as builders, developers, architects and insurance agents must also be educated to broaden their perspectives and increase their awareness of their role in flood hazard mitigation. Finally, West Haven officials must continue education and training in their areas of expertise as related to flooding hazards. This is necessary to maintain knowledge of new technologies and techniques that can be implemented to help reach West Haven’s goals.
Education Actions
a. Adopt a Natural Hazards Awareness Week. This week is an expansion of the activity proposed in the Repetitive Loss plan, which called for creating a Flood Awareness Week. The theme was expanded upon recognizing the need for public education related to other hazards as well. This will be discussed further in subsequent sections.
b. During the Natural Hazards Awareness Week, conduct an annual “Flood Fair” so that residents, business owners, insurance and real estate agents, and all interested parties can familiarize themselves with functions of a floodplain, the laws governing development in a floodplain and the hazards associated, mitigation alternatives, and precautions necessary for living in flood prone areas.
c. Continue to visit schools (as is currently done under fire prevention) and educate children about the risks of floods (and other natural hazards) and how to prepare for them.
d. Expand the annual public outreach projects, which cover the repetitive loss properties, to all properties in the entire community. This includes updating of the brochure, which will outline the risks of flood prone areas and mitigation and preparedness strategies and contracts.
e. Organize a meeting with West Haven Insurance Agents and the NFIP representatives from FEMA’s insurance contractors to educate the agents on the program.
f. Encourage builders, developers, and architects to become familiar with the NFIP land use and building standards by attending annual workshops presented by the DEP. This can be accomplished by creating a mailing list and providing it to DEP to use for its announcements. This task can be further supported by distributing copies of DEP’s announcement from the building department when builders and developers apply for permits.
g. Staff from appropriate city offices will attend the DEP and OEM training workshops annually. Also, staff will rotate annually to attend FEMA sponsored training seminars at the Emergency Management Institute (EMI) in Emmetsburg, Maryland. All of these workshops are free of charge. Tuition, travel and lodging are provided by FEMA for the EMI training. Annual training sessions include Emergency Management, Environmental Reviews, the FEMA Grant Programs, the NFIP and CRS and others related to the other hazards.
h. The West Haven Health Department, in cooperation with the American Red Cross, the West Haven Housing Authority, the Department of Human Services, and the Office of Emergency Management will continue to develop a neighborhood buddy system for neighbors to assist neighbors needing additional services and support during emergencies.
i. Creation of flood related information on the City of West Haven’s Internet home page would allow those with Internet capabilities to access the information and down load it at their convenience.
2. Flood Insurance Objectives - Although flood insurance does not prevent damage from occurring or remove structures from harms way, it does provide an excellent means of recovering from losses. Recent changes to the NFIP insurance products (1996) have added mitigation insurance coverage at a very low cost. This new coverage will provide people a portion of the additional financial resources needed to rebuild their repetitively flooded or substantially damaged homes and businesses to comply with local floodplain management regulations and building standards, therefore reducing the cost and amount of future flood damages.
3. Statistical Data - Statistics reported on the City of West Haven from FEMA’s Community Information System, currently identified approximately 970 active National Flood Insurance Policies (NFIP) in the West Haven. There have been 176 paid losses since 1978. Losses have totaled $1,050,789.00. Insurance in force is $99,357,000.00 (the amount of building coverage taken out under the policies). However, based on the results of the vulnerability assessment, there are believed to be approximately 1500 structures in flood zones. The comparison indicates a significant gap in coverage. Also included are repetitive loss properties (RLP) in which any address that has had 2 or more flood insurance claims of $1000.00 or more in any 10-year period. These properties are targeted by FEMA for mitigation, such as acquisition, elevation, and flood proofing.
Flood Insurance Actions
a. Incorporate information on the availability of flood insurance into all of its hazard related public education workshops (from number one, above).
b. Make available FEMA provided flood insurance brochures at public accessible places such as the City Clerk’s office or the Planning and Zoning Department offices. Consider sending this information with the mailing discussed in 1.d, above.
c. Make necessary changes to the Floodplain Zoning Regulations so that all insured residents can be eligible for the additional mitigation coverage (coverage for increased cost of compliance with flood regulations) described above. DEP will provide model language.
4. Community Rating System Objective - West Haven will examine the feasibility of increasing the city’s rating in the CRS to a Class 8, thereby saving residents with flood insurance policies a five percent reduction on their flood insurance premiums.
Community Rating System Actions:
a. Continue to stay current with all CRS reporting requirements to ensure continued program participation. Actively work toward implementing the activities outlined in the Repetitive Loss Plan.
b. Review the availability of credit points (toward reclassification) resulting from the actions implemented as a result of this plan.
c. Pursue credit points for having this multi-hazard plan in place. If points are not made available, lobby to FEMA, with the assistance of the State NFIP Coordinator from DEP, to make the creation of this plan a creditable task.
5. Risk Assessment Data Objective - The FEMA Flood Insurance Rate Maps and Floodway Maps are the most widely used means of assessing the risk of flooding associated with a property. West Haven has other more detailed data available to make such determinations. However, the FEMA maps must be used as the basis for regulating floodplain development under the NFIP regulations. The most recent FEMA mapping was provided in 2004. During the last twelve years significant changes have been made in flood prone areas and several of West Haven’s watersheds. The FEMA maps represent a “snap shot in time” and do not reflect changes caused by development during the past decade. Reasonable prudence suggests that floodplain development has changed the character of the floodplains since 1984. For that reason, improvements to the existing maps have been made.
Risk Assessment Actions
a. Continue to petition FEMA to review the city’s Flood Insurance Rate Maps, and revise if appropriate. Attempts have been made, however it is FEMA’s policy to prioritize communities that have specific, demonstrable problems with mapping. Therefore, West Haven must be sure to bring each identified problem to FEMA’s attention.
b. Provide FEMA with any data obtained from other sources, which would demonstrate the need to revise the maps, expedite the revision process, or lower revision costs.
6. Property Acquisition Objective - West Haven should continue with an aggressive agenda for acquiring flood prone properties, and those that provide valuable recreational and flood storage potential, that will benefit the greatest number of West Haven Residents. Land acquisition can take the form of outright purchases or the less expensive purchase of easements or development rights. Often land acquisition in hazard areas can be combined in recent planning vernacular as “multi-objective floodplain management.”
Acquisition Actions
a. During the 1999 update of the city plan of development, the list of desired public open space acquisitions will be updated. Properties with flood storage and other demonstrable mitigation benefits will be targeted as they were in 1962.
b. Identify new funding sources for open space acquisition such as Feb 18, 1997 ordinance (see appendix II) .
7. Support Grant Funded Flood Mitigation Projects Objective - West Haven has not been very successful in working with citizens with flood prone property to obtain and administer grants from FEMA. West Haven should continue to work with interested citizens to actively pursue project funding.
Grant Funded Mitigation Project Actions
a. Expand house-elevating projects to include frequently flooded riverine areas.
b. Identify public projects eligible for funding under these programs.
c. Explore the possibility adopting a series of city ordinances, which would state that the responsibility for stream channel maintenance falls on the property owner and which would give West Haven enforcement power. Such ordinances would include: stream dumping, channel maintenance, and land clearing disturbances. It is believed that these ordinances would enable West Haven to receive additional points toward CRS reclassification.
d. Make necessary changes to the Floodplain Zoning Regulations so that all insured residents can be eligible for the additional mitigation coverage DEP will provide model language.
e. Review subdivision regulations and evaluate the possibility of incorporating changes to place further limitations on areas of impermeable surfaces in new subdivision developments in flood prone areas. If warranted make the necessary changes to the West Haven Subdivision Regulations.
f. Continue to aggressively pursue wetlands protection through existing wetlands regulations. Incorporate performance standards into subdivision reviews to include additional protective measures such as conservation easement areas around wetlands and a watercourses.
8. Stream Channel and Drainage System Maintenance and Improvement Objective-
There is a need to continue to support, plan, and implement stream channel improvement projects within the Public Works budget that will alleviate river related flooding in addition to the restoration and improvement of natural floodplain and wetland areas. There is a further need to expand maintenance activities and execute specific projects. This goal includes the need to foster a cooperative and share vision between the Flood and Erosion Control Board and the Inland Wetland Commission.
9. Stream Channel and Drainage System Maintenance and ImprovementActions. a. Conduct annual inspection of flood prone areas (particularly neighborhoods in which the Repetitive Loss Properties are located) that are legally accessible to city officials. Check to see if catch basins and culverts are clogged and if tide gates are functioning properly.
b. Develop an application of ISTEA Grant for roadway Storm-water Pollution Mitigation. This includes the identification and ultimate retrofitting and annual cleaning of designed catch basins to improve water quality and allow for more efficient processing of floodwaters. This activity supplements West Haven’s ongoing annual effort of cleaning catch basins and culverts.
10. Construction and Structural Flood Mitigation Objectives - A variety of projects are being investigated or are underway to mitigate against flood damage by undertaking physical changes to man made improvements. It is West Haven’s broad goal to complete the projects described below and to actively identify and pursue funding mechanisms to complete future construction projects to mitigate flood damage.
Construction and Structural Mitigation Actions
a. The intersection of Main Street, Painter Drive and Dark Street is frequently flooded during heavy rain events. The City of West Haven will investigate funding sources and feasibility of improvements to the intersection to mitigate flooding problems. At minimum West Haven will look into a warning system to alert motorists and property owners to the dangers present at the intersection during times of flooding. Warning may take the form of signage, utilization of the reverse 911 system, and traffic control lights. b. Elevating/raising homes along coastal flood areas. Elevating homes in these flood prone areas will significantly reduce the cost of repairing these homes heavy rains, hurricanes, winter storms and/or 25 year+ storms.
1. The purchase of flood prone properties in the Cove River and Old Field Creek flood plain should be considered. Acquisition of properties should be on an individual basis based upon severity and frequency of flooding. The economic feasibility of selective acquisition can only be determined by city officials. Once purchased, structures may be raised or elevated to proper elevations.
2. Properties along the shoreline could be elevated to the proper elevations to eliminate flooding in the structures. This elevation will significantly reduce the damage due to hurricanes and nor’easter type storms. In addition to elevation, some effort should be made to secure homes from storm damage by installing bracing and straps along with shutter systems. No new structure should be built without proper hurricane bracing and strapping.
11. Flood Warning Objectives - Based on the success of the coastal flood warning system, continued upgrading of the system and expansion to include inland areas is warranted.
Flood Warning Actions
a. Identify funding sources and install staff gauges for the Cove River.
b. Revise and update the “Flood Response Plan.” This would complement the “Emergency Operations Plan” already adopted by the City of West Haven, but it is specific to handling flood conditions and incorporates mitigation items outlined in this plan.
c. Investigate locations and necessary labor involvement for the pre-event stockpiling of sand bags for use in the flood prone areas. Pursue mutual aid agreements with such organizations as the American Red Cross and the Boy Scouts of America to provide volunteer labor during flooding to fill sand bags and assist with other response activities. Investigate and pursue the purchase of an automated sand bagger by the city, through state or federal funding.
V. WIND
History - This Section of the plan focuses on mitigation of wind hazards associated with hurricanes, tornadoes severe thunderstorms, nor’easters and other ice and snow events. Due to West Haven’s location on Long Island Sound, and its heavily treed landscape it is very susceptible to damaging winds. During the past twenty years, West Haven has experienced wind damage form all of the above listed types of storms with the exception of tornadoes. Experience has shown generally that winds in excess of 50 miles per hour (mph) will cause significant tree damage. The damage and damage to buildings and cable utilities due to downed trees has historically been the biggest problem associated with windstorms. Data from the National Climatological Data Center, obtained from the Internet, indicates that, at Sikorsky Airport in Bridgeport, wind events with speeds in excess of 50 mph have occurred on 23 occasions since 1975. The same data indicates that peak gusts have occurred on 23 occasions since 1975. The same data indicates that peak gusts have exceeded 65 mph at the same site. Although the data obtained from the Bridgeport weather station may not mirror exact conditions in West Haven, it is enough to demonstrate an approximate history of storms containing damaging winds.
Most recent, on October 19, 1996 wind damaged many trees through out the city, and surrounding communities with clean-up taking approximately two weeks. The City of West Haven does not currently have a program to mitigate against wind damage. Efforts are spent on response and clean-up following wind events. West Haven no longer has a full time tree department; tree trimming on municipal owned property is conducted on an as-needed basis or following complaints by residents. All tree work is assigned by the public works department, to an independent contractor for mitigation. United Illuminating (UI) has a tree trimming maintenance program in place. Contractors are hired to trim tree limbs and small trees along UI lines in quadrants of town every four to five years. The program circulates to include trimming in one portion of town each year so that the entire town is trimmed every four to five years, on a revolving basis. The UI program is self-maintenance program that deals only with potential threats to their lines. It does not address other property.
Vulnerability Assessment
West Haven is vulnerable to damage from wind due primarily to its locations along the coast of Long Island Sound and the fact that it is heavily planted with trees. As with most of coastal Connecticut, the coastline of West Haven is densely developed with residential properties. The entire community is vulnerable to wind damage. The coastline, however, is considered the most vulnerable area due to hurricanes and winter storms entering from the south. The coast is also susceptible to wind damage from cold fronts with strong southerly winds.
Since 1960, Connecticut has had 50 confirmed tornado events. The most vulnerable areas of the state is Litchfield County based on historical accounts. Seven of the 50 confirmed tornadoes since 1960 were in Fairfield County. Of the eight counties in Connecticut, Fairfield has had the fourth highest number of tornadoes since 1960. Inland areas are generally more vulnerable to tornadoes that coastal areas, since sea breezed have the effect of defusing tornadoes.
Schools in the City of West Haven serve as emergency shelters during disasters. The Carrigan Middle School is considered the primary shelter, but has no generator. A U.S. Army Corps of Engineers study, prepared using the SLOSH computer model (Sea Lake and Overland Surge from Hurricanes), indicated a need for an emergency shelter capacity of 1,500 in West Haven. The secondary shelter in West Haven is the Bailey Middle School, which is suitable to meet this need. The West Haven Emergency Operations Plan includes a Shelter Annex that specifically outlines each shelter and the capacity as per American Red Cross standards. (See Shelter Table)
Existing Mitigation
After a series of deadly tornadoes struck Litchfield and New Haven counties on July 10, 1989, killing two persons and causing millions of dollars in damage, Connecticut installed a new type of warning system. The National Oceanic and Atmospheric Administration (NOAA) Weather Radio Specific Area Message Encoder (WRSAME) system allows forecasters at three National Weather Service (NWS) offices to send watches and warnings to specific areas of Connecticut. West Haven is served by the NWS office on Brookhaven, Long Island, New York. Warnings can be sent within a few minutes of a Doppler radar indication that at a tornado may be trying to form within a severe thunderstorm. In addition to information on tornadoes or significant weather occurrences forming in the area, including hurricanes and severe thunderstorms, West Haven has two WRSAME radios located in the 911 Center. These radios are used in conjunction with the apparatus systems in coastal areas to warn residents of coming severe weather and for evacuations when necessary. Immediate notification will be provided by the Reverse 911 system scheduled for installation in spring 2005. Objectives & Actions 1. Education Objectives - As with the other hazards discussed in this plan, education is a critical component in mitigating wind damage. West Haven should take the lead in providing educational opportunities to the affected community, builders, developers and town officials so that future construction and landscaping associated with construction is designed to minimize wind damage and retrofitting of existing structures and maintenance of property are implemented to the benefit of public safety and property loss reduction.
Education Actions a. During the Natural Hazards Awareness Week, outlined in Education Action 1.a in the Flood Section, conduct an annual workshop so that local building contractors, residents, business owners, insurance and real estate agents, and all interested parties can familiarize themselves with wind-associated risks, retrofitting techniques, important of evacuation, and the understanding of warning mechanisms used in town.
b. Continue to visit schools (as is currently done under fire prevention) and educate children about the risks of wind events (and other natural hazards) and how to prepare fore them.
c. The Building Department will make information on wind construction techniques (such as hurricane straps) available to all building permit applicants, obtain literature on wind resistant construction techniques and incorporate that information into the natural hazards reduction information in the town library. The information will also include information on non-structural mitigation measures. Such literature is available from FEMA, BOCA (Building Officials & Code Administrators International Inc.) and the state DEP.
d. Promote the use of functional shutters for properties located along the coast to guard against window breakage which can result in structural failure.
e. The West Haven Health Department, in cooperation with the American Red Cross, the West Haven Housing Authority, the Department of Human Services, and the Office of Emergency Management, will continue to develop the Community Emergency Response team. This Public Health Team in conjunction with the city’s Homeland Security Office will assist as necessary at any shelters.
2. Tree Damage Reduction Objectives - Damage to trees and resulting power outages and damage to buildings as a result of winds is the most problematic issue facing West Haven during storms with high winds. Wind damage to utility lines and property and injury or loss of life should be implemented. Because loss of tree limbs and brush during these events is inevitable, the town must also account for ways to clean up and dispose of such debris.
Tree Damage Reduction Actions
a. Continue to apply the landscaping standards of the West Haven Zoning Regulations during the review of new subdivisions and commercial projects.
b. Continue to require the burying of utility lines for subdivisions and encourage lines to be buried for other projects where appropriate. When major road projects are designed, special consideration should be given to burying overhead lines.
c. Identity a location in each of the four quadrants of town for a brush disposal operation for dealing with debris after windstorms. Determine how these trees can be reused within the community to reduce costs of exporting from West Haven (chips, firewood, composting). Develop agreements, if necessary, with landowners and with companies to chop/chip to insure that plans are in place prior to damage (i.e. like snow plow operations).
3. Warning and Response Objective - Severe weather warning, response and clean-up are among West Haven’s strongest existing capabilities with regard to wind damage mitigation. The city should implement actions to improve the effectiveness of these functions. In this area, the will ask the Board of Education to prepare plans for the safety of the children in the event of disasters such as tornadoes. While warning systems may not be defined as pure mitigation, they are an integral part of West Haven’s overall emergency management strategy and therefore, warrant inclusion here.
Warning and Response Actions
a. Request that the city and the Board of Education have engineering surveys performed on school buildings that are used for shelters and recommend improvements if necessary.
Request that the city, including the Board of Education, if applicable, survey all municipality owned buildings for their ability to withstand earthquake and wind loading. Prioritize any retrofitting, given those buildings to be used as shelters the highest priority. If analysis reveals that a particular building is better suited as a shelter than one that is currently being used, then consider relocating the shelter to that location.
b. Encourage commercial building owners or managers (of buildings with large population clusters) to not only have emergency response plans, but also to identify mitigation opportunities for long range planning.
c. Work through the state OEM & DEP to locate NOAA weather radios in commercial buildings with large population clusters. Educate building managers on the proper use of the radios.
d. Identify funding sources for the installation of back-up power generators in all buildings that have been identified as shelters in the EOP.
4. Site Specific Objective - In appropriate situations, the City of West Haven should implement specific physical actions to reduce damage to properties associated with wind, in which there is a public interest.
a. Implement a Marina management plan addressing pollution prevention and mitigation Marinas. Share that plan with the other marinas and yacht clubs and encourage them to develop plans on their own. Literature and technical assistance are available form the state DEP Office of Long Island Sound Programs and from FEMA.
The methodology used to produce the results contained in the hurricane and earthquake study is called HAZUZ. HAZUS was developed by the Federal emergency Management Agency (FEMA) in cooperation with the National institute of Building Sciences (NIBS). HAZUS uses Geographic Information System (GIS) software to calculate, map and display earthquake loss data. HAZUS uses mathematical formulas and information about building stock, geologic conditions, potential hurricanes or earthquakes, economic data and other information to estimate losses.
This report utilizes default data contained in the HAZUS software compiled from available national databases. These default databases describe in general terms the building inventory, including economic and the social structure of West Haven, Connecticut. The default data provides a very rough estimate of hurricane and earthquake losses. More accurate estimates require detailed information about local geology, buildings, utilities, transportation systems and other specific information.
This data is usually available from local and state agencies and departments and typically can be added to the HAZUS database by local and state emergency personnel. In some cases, however, technical assistance from geologists, engineers and GIS experts may be required.
It is imperative to the point out that this HAZUS loss estimate is not a precise prediction, but rather a rough forecast of potential damage, human and economic impacts that may result from a single future hypothetical earthquake occurring a specific location. While this estimate is based upon on current scientific and engineering knowledge, there are large uncertainties in the results. Moreover, the study results are area-wide and not applicable to individual sites or facilities. Site-specific results require detailed engineering studies and specific examinations beyond the scope and intent of HAZUS.
HAZUS has also been expanded to include a model of the 1938 hurricane, flooding, storm debris, sheltering, and wind analysis. A number of supplemental hazard data and maps for floods, hurricane surge, and wind, for the City of West Haven are contained in this plan. VI. EARTHQUAKE
The first step in preparing for and mitigating any disaster is to estimate its potential impact on an area or region. The purpose of this study is to provide emergency planners and other government decision makers with a very general estimate of the potential impact of a moderate size earthquake occurring in the City of West Haven, Connecticut.
EXECUTIVE SUMMARY OF IMPACT
The following is an Executive Summary of the estimated impact of a magnitude 5 earthquake effecting West Haven, Connecticut.
ESTIMATED DIRECT LOSSES General Building Stock $52,948,000 Transportation System $2,664,000 Lifeline Utilities $1,807,000 TOTAL DIRECT LOSSES $57,419,000
ESTIMATED INDIRECT ECONOMIC IMPACT Income $(6) Million Employment 0 Jobs
ESTIMATED FUNCTIONALITY OF ESSENTIAL FACILITIES Police, Fire and EOC’s 10% Hospitals Data Not Available% Schools 11% Bridges 100% Roadways 100% ESTIMATED INDUCED DAMAGE Fire Ignitions 1 Debris Generated (Tons) 9,000
ESTIMATED SOCIAL IMPACT Casualties 8 Displaced Households 26 Households Without Power 9,625
THE EARTHQUAKE HISTORY OF WEST HAVEN, CONNECTICUT
The earthquake history of West Haven, Connecticut includes a number of earthquakes, with the largest known event to have occurred on May 16, 1791, near Moodus, Connecticut. The magnitude of that event was 4.4.
Both historically and in recent times earthquakes have been felt in West Haven, Connecticut that have been centered throughout the Northeast United States and Southern Canada. The largest earthquakes to occur in the Northeast occurred in 1755 off Cape Ann, Massachusetts (6.0), in 1904 near Eastport Maine (5.8), in 1940 near Ossipee, New Hampshire (5.8), and in 1944 near Massena New York (5.9). Since 1982 moderate size earthquakes with a magnitude of 4.5 to 6.0 have occurred in Central New Hampshire, northern New York State and central New Brunswick.
THE STUDY EARTHQUAKE
The scenario earthquake used for this study is located in West Haven, Connecticut with a magnitude of 5. It is important to note that this event does not represent the largest earthquake that could affect West Haven, Connecticut. In fact, the United Stated Geological Survey (USGS) has indicated that an earthquake with a magnitude of up to 7.0 could occur at any time anywhere on the east coast of the United States.
THE STUDY AREA
The area chosen for this study was West Haven, Connecticut with a land area of approximately 10.99 square miles and population of 52,360. The study area includes 7 census tracts, which are the basic units of analysis for the HAZUS Methodology.
DIRECT PHYSICAL DAMAGE
General Building Stock HAZUS estimates losses to the general building stock using default national inventories. Damage to the general building stock is not evaluated on a building-by-building basis. Instead, the methodology estimates losses based on the general character of the building stock (e.g. occupancy, age, height, floor area, type and class) in each census tract. Damage estimates are then converted into dollar losses. The direct losses to the general building stock were estimated to be $82,948,000. HAZUS estimates the total building stock exposure for West Haven, Connecticut to be $1,862,012,000. Therefore, these losses represent approximately 4.20% percent of the total value of the building stock. These total losses include direct building damage (structural, non-structural, contents and inventory) and income losses (relocation, income, wages and rental). Director losses are $49,692,000 or 94% of the total losses with income losses of $3,256,000 accounting for the remaining 6%.
Transportation Systems The HAZUS default database of transportation facilities was created with data obtained from sources such as the Federal Highway Administration, the Federal Aviation Administration and the Census Bureau’s Topographically Integrated Encoding and Referencing (TIGER) Files. Total estimated losses to the transportation system are estimated at $2,664,000.
Lifeline Utilities The HAZUS methodology estimates losses for selected types of lifeline utilities. Lifeline utilities are vital to the function of a community or state. Damage to these systems can be devastating in terms of health and safety of the citizens. Total direct losses to lifeline utilities were estimated at $2,307,000. For electric power it was estimated that 9,625 households would be without power immediately following the earthquake. This translates into approximately 25,086 people without power.
Essential Facilities The HAZUS methodology estimates losses for selected types of essential facilities. These include hospitals, police, fire, emergency operating centers and schools. Schools are included because of the critical role they play as emergency shelters. Estimated losses to essential facilities are expressed in terms of their ability to function immediately following the earthquake. The degree of average functionality for essential facilities was estimated as follows:
High Potential Loss Facilities HAZUS defines high potential loss facilities as dams, nuclear facilities and military facilities. High potential loss facilities tend to be unique and complex facilities that would require in-depth analysis by structural, and geotechnical engineers to assess their vulnerability to earthquakes. For this reason HAZUS is limited to providing information about the location of the study areas high potential loss facilities and estimated ground shaking.
ECONOMIC AND SOCIAL LOSSES
Economic Losses For the purposes of this study economic impact was estimated for two areas, income and employment. The study estimates a net income impact of $(0.71) Million for the first year following the earthquake. This number can be negative or positive. If it is positive, then it represents net gain in the first year is due to some industries including construction and manufacturing that benefit from the recovery efforts. If it is negative, then it represents a net income loss resulting from the earthquake. If the income losses are averaged for the 5 year period that follows the earthquake, than annual impact averages about $(1.25) Million per year or a 5 year total of $(6) Million. These numbers can also be negative or positive.
Employment is expected to remain unchanged for the first 5 years following the earthquake. If employment changes are averaged for the 5 year period that follows the earthquake, than the average total employment impact is about 0.0 jobs per year or a 5 year total of 0 jobs. Employment can also be impacted in a positive or negative way. If it is positive, then the net gain in employment is similarly due to the construction and manufacturing sector that benefit from the recovery efforts.
Casualties HAZUS utilizes casualty statistics form previous earthquakes to estimate the number of casualties expected from this earthquake. Estimates of casualties are broken down into four severity levels as follows:
Severity Level 1-Injury requires basic medical aid without hospitalization Severity Level 2-Injury requires medical hospitalization non-life threatening Severity Level 3-Injuiry poses immediate life threatening condition if not treated Severity Level 4-Instantaneously killed or mortally injured
Casualty estimates are based primarily on building damage, occupancy, and time of day. Casualties are estimated for three times of day 2:00 AM, 2:00 PM and 5:00 PM. These three times were selected to evaluate the impact of population distributions at home, at work and commuting. Casualty estimates range from a high of 8 at 2:00 AM to a low of 3 at 5:00 PM. The greatest number of casualties occur at 2:00 AM when most people are likely to be at home. Conversely, the fewest number of casualties occur at 5:00 PM when most people are likely to be commuting.
Sheltering Earthquakes can cause loss of habitability of buildings that contain housing units. Loss of habitability is calculated directly from damage to residential occupancy inventory and from loss of power and water.
The HAZUS methodology estimates the number of displaced households and the number of those households expected to seek shelter based on the number of non-functioning or inhabitable units. HAZUS estimated that 26 displaced households would result in approximately 17 people requiring emergency shelter. Individuals whose housing become uninhabitable will likely seek alternative shelter. Many will stay with friends and relatives. Others will stay in hotels. Some will stay in public shelters. In addition, observations from past disasters show that approximately 80% of the pre-disaster homeless will seek public shelter in time of disaster. Finally, data from recent earthquakes indicated that approximately one-third of those seeking public shelter came from residences with no or insignificant structural damage. This perceived structural damage coupled with seasonal variations in West Haven, Connecticut could result in a 50% increase in the estimate of people seeking shelter.
INDUCED PHYSICAL DAMAGE
Fire Following Fire following earthquake can cause severe losses as evidenced in the 1970 San Francisco Earthquake and the 1995 Kobe Japan Earthquake. Debris blocking streets and a lack of water to fight the fires due to broken water mains can further exacerbate the problem. HAZUS calculates the number of earthquake-generated fires at 1, exposing 70 individuals and $3,742,000 in property to fire impact and damage. This number is estimated based on the distribution of intensity of earthquake ground shaking and a simple fire following earthquake model. It should be pointed out that a more complete fire following earthquake model requires extensive input with respect to level of readiness of local fire departments and the functionality of the water distribution system.
Hazardous Substances HAZUS defines Hazardous substances as chemicals, reagents, or substances, which exhibit physical or health hazards, whether the materials are in a usable or waste state. The default database was developed using the EPA Toxic Release Inventory (TRI) Database of hazardous material sites. The HAZUS default database contains only those substances that are considered highly toxic, flammable or explosive. In addition it is limited to those facilities where large quantities are stored. Estimating earthquake losses related to the release of hazardous substances would require in-depth analysis by structural, and geotechnical engineers, health physicists, and chemical experts to assess their vulnerability to earthquakes. For this reason HAZUS is limited to providing geographic information about the location of the study areas hazardous substances and estimated ground shaking. This simple map can serve as a first step in developing preparedness and mitigation efforts for facilities storing hazardous substances.
Debris HAZUS uses a simple model that estimates two types of debris caused by ground shaking. The first type of debris is reinforced concrete and steel that tend to fall in large pieces. These larges pieces of debris will need to be broken down into smaller pieces before they can be disposed of. It is likely that cranes and other heavy equipment would be required to remove this type of debris. It is estimated that 3,000 tons of reinforced concrete and steel debris will be generated from the earthquake. The second type of debris include brick, would, glass, furniture, equipment, plaster walls and other materials that are smaller in size and more easily removed with a bulldozer or hand held tools. It is estimated that the earthquake will generate 6,000 towns of brick, wood, glass and other small pieces of debris. The combined total debris is estimated to be 9,000 tons.
The HAZUS methodology does not estimate debris due to collapsed bridges and overpasses. This is due to the model simplifications and the potential for large uncertainties in estimating this type of debris.
Implementation Schedule
The action agenda tables presented below is to provide an overview of the estimated time frame for completion of each of the above identified actions, the responsible department or organization and possible sources of funding for the action. The information contained in the table represents goals. Section VI provides for scheduled reviews and updating of the goals addressed by this plan. Section V provides more detailed information on potential funding sources listed here and in later implementation tables.
VII. ACTION AGENDA
Table of Lead Agencies
BD Building Department EM Emergency Management ES Emergency Services DOT State Department of Transportation FEMA Federal Emergency Management AgencyGA Governmental Administrative HD Health Department IW Inland/Wetland Agency PW Public Works Department PZ Planning and Zoning
VIII. PLAN MAINTENANCE
Public participation, city personnel, and businesses involved in creating this plan, consisted of a public hearing through the City of West Haven Emergency Management & Homeland Security Office. The City of West Haven will incorporate this plan into the West Haven Plan of Development during scheduled revisions to that plan in 2005. As a result of this process, additional opportunities for public involvement will be afforded.
The implementation tables presented in the action agenda section outline target dates for completing each task. In the tables, a responsible department is assigned to the task and potential funding mechanisms are listed. The tables were prepared with the understanding that the potential funding sources may not be available within the time frame necessary to completed the action on schedule. Good plans do not sit still. They are dynamic and subject to change as conditions and issues evolve. It is necessary to incorporate into the plan a system of monitoring its progress and making necessary adjustments.
A representative from the West Haven’s Homeland Security Office, will be named as coordinator for the hazard mitigation planning committee that was responsible for preparing this report. On the anniversary of the adoption of this plan into the city Plan of Development, the entire committee will meet to review the implementation tables as well as the goals, objective, and actions outlined in the plan.
The committee coordinator will prepare a brief report on the status of plan implementation. The report will include the following: a review or the goals and objectives of the original plan; a review of any disasters or hazards that occurred during the year; a review of each element, objective, or the original plan, including what was accomplished the previous year; a discussion of why any objective were not reached or why implementation is behind schedule; and recommendations for new projects or revised objectives. The committee meeting and report will be prepared annually.
XI. Maps, Tables, and Illustrations
A. Cove River Floodplain Flooding Area B. Old Field Creek Floodplain Flooding Area C. Lake Phipps & Dam Structures D. Maltby Lakes & Dam Structures E. Sub-regional Watershed Area F. Community Facilities G. Steep Slope & Wetland Soils H. Community Facilities I. Shelter Facilities J. File Flood Photos K. Public Hearing Attendance
CITY OF WEST HAVENPUBLIC SHELTER FACILITIES
FACILITY NAME ARC FLOOD CAPACITY _____________________________________________________________________
1. Alma E. Pagels School NO None 670 2. Anna V. Malloy School NO None 100 3. Allingtown F.D. (Hqrts) YES None 66 4 Bailey Middle School YES None 622 5. Carrigan Middle School YES None 1138 6. City Hall Senior Center YES None 93 7. Forest Elementary School YES See Note 5 100 8. North End Co. #3 YES None 66 9. Thompson School NO None 200 10. West Haven High School YES None 1635
TOTAL CAPACITY 4690
NOTES:
1. Inclusion on this list does not indicate that a facility will be used in a given hurricane evacuation. The choice of public shelters for a specific evacuation is and operational decision made by local emergency management officials. 2. See plate E-10 of the companion Evacuation Map Atlas for locations of shelters. 3. American Red Cross. *YES indicates that the American Red Cross has agreed to operate the facility as a Mass Care Facility. 4. None indicates the facility is located in Hurricane inundation areas, 500 - year, and/or 100-year flood zones. 5. The Forest Middle School is located adjacent to the 500-year and the 100- year flood plain. The base floor elevation determined by the City of West Haven is 131.8 feet. (MSL), which is above the 500 – Frequency, flood elevation.
Note: The above listed pre-landfill shelter capacities have been adjusted using the new standard of 15 sq ft authorized by the ARC.
X. TECHNICAL & FINANCIAL RESOURCES
This Section is comprised of a list of resources to be considered for technical assistance and potentially financial assistance for completion of the actions outlined in this plan. This list is not all-inclusive and is intended to be updated as necessary.
A. FEDERAL RESOURCES
Federal Emergency Management Agency Region I Office J.W. McCormack POCH, Room 462 Boston, MA
02109-4595
Mitigation Division
Administers all of FEMA’s hazard mitigation programs, including: National Flood Insurance Program and Community Rating System; prepares and revises flood insurance studies and maps; information on past and current acquisition, relocation, and retrofitting programs; expertise in other natural and technological hazards, including hurricanes, earthquakes and hazardous materials. Financial assistance includes Hazard Mitigation Grant program (post--disaster); Flood Mitigation Assistance Program (pre-and post-flood); training for local officials at Emergency Management Institute in Emmitsburg, Maryland.
Earthquake Hazards Reduction Assistant Program As part of the National Earthquake Hazards Reduction Program (NRHRP), the purpose of the FEMA’s State Earthquake Hazards Reduction Program is to provide funds for the development of comprehensive risk reduction programs at the State level and risk reduction measures at the local level to reduce future earthquake damages and losses. The fundamental goal of the program is to reduce earthquake impacts and the subsequent loss of lives, property damages, and economic losses. To accomplish these goals, technical assistance from State programs to local governments in he areas of structural and non-structural mitigation, building codes, and land-use planning ordinances is necessary.
State Hurricane Program This program is concerned with reducing the impacts of hurricanes and coastal storms on coastal areas of the United States and its territories as well as reducing the extent of subsequent losses. FEMA provides financial and technical assistance to State and local governments to support their efforts to mitigate the damaging effects of hurricane and coastal storms. State Hurricane Program funds are to be used for mitigation and preparedness activities related to hurricane hazards. Each participating State receives a Local Assistance allocation of $5,000 in addition to the State Assistance Grant.
Hurricane Program Property Protection - Mitigation Grants This element of the Hurricane Program provides grants to hurricane-prone States to implement mitigation projects. Each FEMA Region with States participating in the Hurricane Program receives funds for this activity. The Regional offices solicit the States to undertake projects that reduce the risk of loss of life or injury from damaged structures and reduce the overall cost of hurricane disasters due to property damage. This program is administered by the CT OEM.
Multi-State Groups There are three multi-state (regional) consortia that FEMA funds: the Western States Seismic Policy Council (WSSPC), the New England States Emergency Consortium (NESEC), and the Central United States Earthquake Consortium (CUSEC). The mission of all three consortia is to support the National Earthquake Hazard r Program (Reduction) funded State earthquake programs. They provide support in areas such as coordination between the States in a region and public awareness and education, and they also reinforce interactions between all levels of government, academia, non-profit associations, and the private section.
Technical Assistance Contracts The Mitigation Directorate has in place several Technical Assistance Contracts (TAC) that support FEMA, States, territories, and local governments with activities to enhance the effectiveness of natural hazard reduction program efforts. The TACs support FEMA’s responsibilities and legislative authorities for implementing the earthquake, hurricane, dam safety, and floodplain management programs. The range of technical assistance services provided through he TACs varies based on he needs of the eligible contract users and the natural hazard programs. Contracts and services include:
* The Hazard Mitigation Technical Assistance Program (HMTAP) Contract- supporting post-disaster program needs in cases of large, unusual, or complex projects; situations where resources are not available; or where outside technical assistance is determined to be needed. Service include environmental and biological assessments, benefit/cost analyses, historic preservation assessments, hazard identification, community planning, training, and more.
* The Wind and Water Technical Assistance Contract (WAWTAC) - supporting wind and flood hazards reduction program needs. Projects include recommending mitigative measures to reduce potential losses to posit-FIRM structures, providing mitigation policy and practices expertise to States, incorporating mitigation into local hurricane program outreach materials, developing a Hurricane Mitigation and Recovery exercise, and assessing the hazard vulnerability of a hospital.
* The National Earthquake Technical Assistance Contract (NETAC) - supporting earthquake program needs. Projects include economic impact analyses of various earthquakes, vulnerability analyses of hospitals and schools, identification of and training on non-structural mitigation measures, and evaluating the performance of seismically rehabilitate structures, post- earthquake.
Hazard Mitigation Grant Program (HMGP) HMGP is a post-disaster mitigation program that provides funding for hazard mitigation projects in affected counties following presidentially declared disasters. Available funds are based on a percentage of the total damages caused by the particular disaster. grants from this program are limited to state and local governments and certain non-profit organizations. There is a need to demonstrate a positive cost/benefit analysis and a cost-share requirement of 25% to match the federal funds provided. Grants are competitive within the affected area. This program is administered by the state of Connecticut, Department of Environmental Protection.
Flood Mitigation Assistance Program (FMA) FMA is a pre-disaster mitigation program created by the National Flood Insurance Reform Act of 1994. This program provides both project and planning grants annually for flood hazard mitigation planning and projects with direct demonstrable benefits to the NFIP insurance fund. Administratively, this program is very similar to the NMGP described above.
Response & Recovery Division Information on dollar amounts of past disaster assistance including Public Assistance, Individual assistance, and Temporary Housing; information on retrofitting and acquisition/relocation initiatives. Coordinates federal disaster assistance programs, including 75% grants for mitigation projects to protect eligible damaged public and private non-profit facilities from future damage through he Public Assistance Program, and 100% “minimization” grants through he Individuals and Family Grant Program.
Computer Sciences Corporation New England Headquarters, 140 Wood Road, Suite 200, Braintree, MA 02184
A private company contracted by the Federal Insurance Administration as the National Flood Insurance Program Bureau and Statistical Agent, CSC provides information and assistance on flood insurance, including handling policy and claims questions, and providing workshops to leaders, insurance agents, and communities.
Small Business Administration 360 Rainbow Boulevard South, 3rd Floor Niagara Falls, NY 14303 Disaster Program
Director: Win Allred
SBA has the authority to “declare’ disaster areas following disasters that affect a significant number of homes and businesses, but that would not need additional assistance through FEMA. (SBA is triggered by a FEMA declaration, however.) SBA can provide additional low-interest funds ( up to 20% above what an eligible applicant would “normally” qualify for) to install mitigation measures. They can also loan the cost of bringing a damaged property up to state or local code requirements. Can be used in combination with the new “mitigation insurance” under the NFIP, or in lieu of that coverage.
Environmental Protection Agency Region I - JFK Federal Building, Government Center, Boston, MA 02203
Capitalization Grants for State Revolving Funds Low interest loans to governments to repair, replace, or relocate wastewater treatment plans damaged in floods. Does not apply to drinking water or other utilities.
Clean Water Act section 319 Grants Cost-share grants to state agencies that can be used for funding watershed resource restoration activities, including wetlands and other aquatic habitat (riparian zones). Only those activities that control non-point pollution are eligible. Grants are administered through the CT DEP, Bureau of Water Management, Planning and Standards Division.
U.S. Depart. of Housing and CT Dept. OF Economic and Comm. Development Urban Development 505 Hudson Street 330 Main Street Hartford, CT 06106 Hartford, CT
06106
Community Development Block Grants (CDBG): Communities with populations greater than 50,000 contact HUD directly regarding CDGB. Communities smaller than 50,000 compete for funds allocated to the state Department of Economic Development. one program objective is to improve housing conditions for low and moderate-income families. Projects can include acquiring flood prone homes or protecting them from flood damage. Funding is a 100% grant; can be used as a source of local matching funds for other funding programs, such as FEMA’s “404” Hazard Mitigation grant Program. Funds can also be applied toward “blighted” conditions, which is often the post-flood condition. A separate set of funds exists for conditions, which create an “imminent threat.” The funds have been used is the past to replace (and redesign) bridges where flood damage eliminate police and fire access to the other side of the waterway.
U.S. Army Corps of Engineers Special Studies Branch 424 Trapolo Road Waltham, MA 02254
Provide 100% funding for floodplain management planning and technical assistance under the Floodplain Management Services Program (FPMS). Various flood protection measures such as beach re-nourishment, stream clearance and snagging projects, flood proofing, and flood preparedness funded on a 50/50 matching basis by Section 22 planning Assistance to States program. They are authorized to relocate homes out of the floodplain if it proves to be more cost effective than a structural flood control measure.
U.S. Department of Commerce National Weather Service 445 Myles Standish Blvd. Taunton, MA 02780
Prepares and issues flood, severe weather, and coastal storm warnings. Staff hydrologists can work with communities on flood warning issues and can give technical assistance in preparing flood-warning plans.
U.S. Department of the Interior National Park Service Rivers and Rails Conservation Program Regional Office, 15 State Street Boston, MA 02109
Technical Assistance with open space preservation planning; can help facilitate meetings and identify non-structural options for floodplain development.
Fish and Wildlife Service New England Field Office 22 bridge Street, Unit #1 Concord, NH 03301
Can provide technical and financial assistance to restore wetlands and riparian habitats through the North American Wetland Conservation Fund and partners for Wildlife programs.
U.S. Department of Agriculture Natural Resources Conservation Service (formerly SCS) CT Office - Storrs, CT
Technical assistance to individual land owners, groups of landowners, communities, and soil and water conservation districts on land-use and conservation planning, resource development, storm water management, flood prevention, erosion control and sediment reduction, detailed soil surveys, watershed/river basin planning and recreation, fish and wildlife management. Financial assistance is available to reduce flood damage in small watersheds and to improve water quality. Financial assistance is available under the Emergency Watershed Protection Program; the Cooperative River Basin Program; and the Small Watershed Protection Program.
B. STATE RESOURCES
Connecticut Department of Environmental Protection 79 Elm Street Hartford, CT 06106
Bureau of Water Management, Island Water Resources Division - This division is generally responsible for flood hazard mitigation in Connecticut, including administration of the National Flood Insurance Program.
National Flood Insurance Program State Coordinator - flood insurance and floodplain management technical assistance, floodplain management ordinance review, substantial damage/improvement requirements, community assistance visits, and other general flood hazard mitigation planning.
State Hazard Mitigation Officer (shared role with the Office of Emergency Management) - Hazard mitigation planning and policy; oversight of administration of the Hazard Mitigation grant Program and Flood Mitigation Assistance Program.
Flood Warning and Forecasting Service - Prepares and issues flood, severe weather, and coastal storm warnings. Staff engineers and forecaster can work with communities on flood warning issues and can give technical assistance in preparing flood-warning plans.
Flood & Erosion Control Board Program - provides assistance to municipalities to solve flooding, beach erosion and dam repair problems. Certain non-structural measures that mitigate flood damages are also eligible. Funding is provided to communities that apply for assistance through a Flood & Erosion Control Board on a non-competitive basis.
Stream Channel Encroachment Line Program - Similar the NFIP, this state regulatory program places restrictions on the development of floodplains along certain major rivers. This program draws in environmental concerns in addition to public safety issues when permitting projects.
Inland Wetlands and Watercourses Management Program - Provides training, technical and planning assistance to local Inland Wetlands Commissions, reviews and approves municipal regulations for local.
Dam Safety Program - Charged with the responsibility for administration and enforcement of Connecticut’s dam safety laws. Permits the construction, repair or alteration of dams, dikes or similar structures and maintains a registration database of all known dams statewide. This program also operates a statewide inspection program.
Bureau of Water management, Inland Water Resources Division - This division is generally responsible for flood hazard mitigation in Connecticut, including administration of the National Flood Insurance Program. National Flood Insurance Program State Coordinator - flood insurance and floodplain management technical assistance, floodplain management ordinance review, substantial damage/improvement requirements, community assistance visits, and other general flood hazard mitigation planning.
State Hazard Mitigation Officer (shared role with the Office of Emergency Management) - Hazard mitigation planning and policy; oversight of administration of the Hazard Mitigation grant Program and Flood Mitigation Assistance Program.
Flood Warning and Forecasting Services - Prepares and issues flood, severe weather, and coastal storm warnings. Staff engineers and forecaster can work with communities on flood warning issues and can give technical assistance in preparing flood-warning plans.
Flood & Erosion Control Board Program - provides assistance to municipalities to solve flooding, beach erosion and dam repair problems. Certain non-structural measures that mitigate flood damages are also eligible. Funding is provided to communities that apply for assistance through a Flood & Erosion Control Board on a non-competitive basis.
Stream Channel Encroachment Line Program - Similar the NFIP, this state regulatory program places restrictions on the development of floodplains along certain major rivers. This program draws in environmental concerns in addition to public safety issues when permitting projects.
Inland Wetlands and Watercourses Management Program - Provides training, technical and planning assistance to local Inland Wetlands Commissions, reviews and approves municipal regulations for local.
Dam Safety Program - charged with the responsibility for administration and enforcement of Connecticut’s dam safety laws. Permits the construction, repair or alteration of dams, dikes or similar structures and maintains a registration database of all known dams statewide. This program also operates a statewide inspection program.
Bureau of Water Management - Planning and Standards Division - Administers the Clean Water Fund and many other programs directly and indirectly related to hazard mitigation including the Rivers Restoration Grant Program, Section 319 Non-point source pollution reduction grants, and municipal facilities program which deal s with mitigating pollution from wastewater treatment plants.
Office of Long Island Sound Programs- Administers the Coastal Area Management Act program and Long Island Sound License Plate Program.
Department of Emergency Management/Homeland Security (DEMHS) 55 West Main Street Waterbury, CT 06702 hls@PO.state.ct.us
DEMHS is the lead agency responsible for emergency management. Specifically, responsibilities include emergency preparedness, response & recovery, mitigation, and an extensive training program. DEMHS is also the state point of contact for most FEMA grant and assistance programs. They administer the Earthquake and Hurricane programs described above under the FEMA resource section. Additionally, DEMHS operates a mitigation program to coordinate mitigation through out the state with other government agencies.
Office of the State Building Inspector
Responsible for administering and enforcing the Connecticut State Building Code. Also responsible for the municipal Building Inspector Training Program.
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