City of Alexandria, Virginia
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MEMORANDUM
DATE: MARCH 5, 2025
TO: THE HONORABLE MAYOR AND MEMBERS OF CITY COUNCIL
THROUGH: JAMES F. PARAJON, CITY MANAGER /s/
FROM: ADRIANA CASTAÑEDA, DIRECTOR, TRANSPORTATION AND ENVIRONMENTAL SERVICES
DOCKET TITLE:
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Consideration of Adoption of the Repetitive Loss Area Analysis (RLAA) supporting the City of Alexandria’s (City) ongoing participation in the Federal Emergency Management Agency (FEMA) Community Rating System (CRS).
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ISSUE: In support of the City of Alexandria’s (City) ongoing participation in the Federal Emergency Management’s (FEMA) Community Rating System (CRS), staff are seeking adoption of the Repetitive Loss Area Analysis (RLAA) that includes overall analysis of areas in the City impacted by frequent flooding and a guide for mitigation. The City may receive up to 140 points towards the City’s CRS class rating for adoption by City Council and submission to FEMA.
RECOMMENDATION: That the City Council:
1. Adopt the recommendations of the RLAA study that includes recommended actions aimed at reducing flood risk in the identified areas; and
2. Authorize the City Manager to execute the necessary documents that may be required.
BACKGROUND: The RLAA study is a component of the City’s participation in the FEMA CRS Program. Participation in the CRS Program allows for a discount on premiums for federal flood insurance, with the City’s current CRS Class 6 rating providing residents and businesses with up to a 20% discount on premiums.
Because this analysis involves evaluating individual insurance claims associated with properties in Alexandria, most of the information utilized in developing the RLAA is protected from public disclosure. Staff executed an Information Sharing Access Agreement (ISAA) with FEMA to access the Personally Identifiable Information (PII) dataset from FEMA’s insurance records for the explicit purpose of performing this analysis and developing the RLAA.
An RLAA studies the potential causes of repetitive loss and recommends mitigation plans for areas that have or are expected to experience repeated losses from flooding. During this analysis, detailed building information is collected through field visits to develop an understanding of the exact causes of repetitive flood damage at those sites. The purpose of an RLAA is to generate recommendations for mitigation solutions for individual buildings or areas, in contrast to a hazard mitigation or floodplain management plan, which examines community-wide flooding problems and solutions.
Repetitive Loss Property
FEMA considers frequent claims of damage by property owners due to flooding as “repetitive loss" properties. According to FEMA, the City has 35 Repetitive Loss properties, four (4) of which are “Severe Repetitive Loss Properties”. Homes and buildings are considered repetitive loss properties when:
1. Repetitive Loss (RL) Properties:
A FEMA designated Repetitive Loss (RL) property is a building that has experienced flood-related damage at least twice within a 10-year period. The cost of repairs for each flood must average at least 25% of the property's market value.
3. Severe Repetitive Loss (SRL) Properties:
A FEMA designated Severe Repetitive Loss (SRL) property is a building that has incurred flood-related damage for which four or more separate claims payments have been made since 1970, with the amount of each claim (including building and contents payments) exceeding $5,000, and with the cumulative amount of such claim payments exceeding $20,000.
DISCUSSION: In response to frequent and intense flooding events in recent years, staff has sought to implement additional strategies to increase resiliency in both stormwater infrastructure and floodplain management. This RLAA study focuses on specific mitigation strategies in areas subjected to frequent incidents of flood damage or “repetitive loss properties.” The RLAA study was approved by FEMA as part of the City’s CRS verification visit, as it is part of the City’s floodplain management efforts in the context of participation in the FEMA CRS Program.
Once the RLAA is adopted by City Council, the CRS Program may award additional credit points towards the City’s CRS Class Rating and along with other additional points awarded, may increase the City’s Class Rating, providing additional flood insurance discounts to residents and businesses in the City.
While the City is currently performing the CRS requirements and recommended improvements outlined by the RLAA, the final step is to provide documentation to FEMA CRS staff that the governing body has adopted the RLAA. If the City Council adopts the RLAA, staff will submit the RLAA and documentation of adoption to FEMA.
Repetitive Loss Area Specific Mitigation Strategies
Specific mitigation strategies focus on Repetitive Loss Areas (RLAs) that may contain one or more repetitive loss properties and were analyzed based on the watershed.
Holmes Run
This watershed has one RLA with one repetitive loss property.
The following strategies are considered:
Grading/Drainage Improvement: A property protection mitigation measure to combat surface runoff that may be encroaching the back of the structures is to construct a structural barrier or berm to convey that runoff away from the structure and toward the roadway. The responsibility for this mitigation on private property is the responsibility of the property owner. However, this is an eligible practice that would receive up to 50% or $5,000 reimbursement through the City’s Flood Mitigation Grant Program.
Maintain Storm Inlet Capacity: City staff have increased operations and maintenance activities under the Flood Action Alexandria program.
Four Mile Run
There are five separate RLAs and 11 repetitive loss properties in this area. Buildings in these RLAs consist of townhouses, single-family houses, condos/apartments, and businesses. Mitigation measures were observed during the site visits, and results from the questionnaires revealed that mitigation measures such as sump pumps, floodwalls, re-grading of land, and sandbags have been installed/implemented.
The following mitigation strategies are considered:
Capital Projects: The City has multiple capital improvement projects to mitigate flooding issues in the Four Mile Run Watershed that have been completed, are currently underway, or planned for future implementation.
These are listed below:
- Clifford Ave. & Manning St. Curb Inlet (completed)
- Commonwealth, Ashby, and Glebe Large Capacity Project (in design)
- Clifford Ave, Fulton St. & Manning St. Storm Sewer Improvements (in design)
- Notabene Dr. and Old Dominion Blvd. Spot Project (in planning)
- Upgrade Storm Drain System between Manning St. and Glebe Rd. (future)
Stormwater Mitigation for Future Development: Mitigation measures for future development are partly implemented by staff through its updated floodplain ordinance that went into effect in January 2024. Additional measures will be considered during the development of the City’s Flood Resilience Plan that is currently underway.
Maintain Four Mile Run: The City performs routine vegetation removal and sediment removal for the Four Mile Run Flood Control Project to ensure the stream has capacity to convey large storms. These efforts have been increased under Flood Action Alexandria.
Grading/Drainage Improvement: A physical barrier can help manage surface runoff that may be encroaching on structures. A structural barrier or berm can convey that runoff away from homes and toward the roadway. While the responsibility for this mitigation falls upon the property owner, the City’s Flood Mitigation Grant Program incentivizes private property owners to install eligible practices to receive up to 50% reimbursement for the installation of eligible flood mitigation measures up to $5,000 for individual residential and business properties. Also, some of these practices are also eligible to receive a reduction in the Stormwater Utility (SWU) Fee under the SWU Credit Program. Staff will report progress in the RLAA annual report to FEMA CRS.
RLAA General Recommendation Summary
Given the actions the City has taken as part of the Flood Action Alexandria initiative to accelerate capital projects, increase operations and maintenance, and enhance communications, the recommendations in the RLAA captures measure that have already been implemented or are planned to be implemented in the near term. In addition to the RLA-specific mitigation measures discussed above, below are the general RLAA recommendations and a discussion of how these are being implemented.
Improve Communication and Engagement: A public information mitigation measure that the City may implement to mitigate damage from forecasted significant hazard events is to continue improving its public education programs on local flood hazards. The City may perform this by updating its websites, posting signs throughout the community, discussing flood protection measures during Stormwater Utility and Flood Mitigation Advisory committee meetings, and/or local neighborhood association meetings.
The above recommendation has already been implemented by staff as part of the Flood Action Alexandria initiative and ongoing CRS activities. Staff will continue to perform these related tasks and report progress in the RLAA annual report to FEMA CRS.
Elevate Structures: A Property Protection mitigation measure that is recommended for all RLAs within this watershed is to elevate damage-prone structures and equipment such as HVAC units, furnaces and appliances above a previously experienced flood elevation level to avoid damage from flood waters. The responsibility of this measure falls primarily on the property owner.
The above recommendation includes ongoing implementation by staff through the Flood Mitigation Grant Program. The Grant Program incentivizes private property owners to perform these fixes. Also, some of these practices are eligible to receive a reduction in the Stormwater Utility (SWU) Fee under the SWU Credit Program. Staff will report progress in the RLAA annual report to FEMA CRS.
Dry Floodproofing: This property protection mitigation measure entails installing watertight shields over building openings such as windows and doors that require human intervention in a timely manner prior to a heavy rainfall event. The responsibility of this measure falls primarily on the property owner.
The above recommendation includes ongoing implementation by staff through the Flood Mitigation Grant Program. The Grant Program incentivizes private property owners to install eligible practices. Also, some of these practices are eligible to receive a reduction in the Stormwater Utility (SWU) Fee under the SWU Credit Program. Staff will report progress in the RLAA annual report to FEMA CRS.
FISCAL IMPACT: The “Repetitive Loss Area Specific Mitigation Strategies" and the “RLAA General Recommendation Summary” discussed above either have been implemented, are ongoing, or are planned. Funding for those strategies that are ongoing, like the Flood Mitigation Grant Program, and the listed projects, have identified funding in the approved FY 2025 - FY 2034 Capital Improvement Program under the Stormwater Utility 10-Year Plan. No further funding is required.
ATTACHMENTS:
1. Repetitive Loss Area Analysis report (August 2024). Appendices are protected under the Privacy Act of 1974, 5 U.S.C. 552a.
2. Repetitive Loss Areas Map
3. Presentation
STAFF:
Emily A. Baker, P.E., Deputy City Manager
Alicia Wright, Assistant Director, Administrative Services, T&ES
William J. Skrabak, Deputy Director, T&ES
Jesse Maines, Division Chief, T&ES
Brian Rahal, CE IV / Floodplain Administrator, T&ES