Freeboard Deficient Procedure

Modeling and Mapping Non-Accredited Levees

LEVEE ANALYSIS AND MAPPING PROCEDURES OVERVIEW

The Federal Emergency Management Agency’s (FEMA) responsibilities include educating and helping a
community understand their flood risk. One of the ways FEMA does this is by creating maps to help
communities understand the its flood risk and define this as high, moderate, or low risk of flooding.
When FEMA conducts a flood mapping project and a non-accredited levee system is involved, there are
specific considerations to take into account.

FEMA created a set of procedures for non-accredited Levee freeboard is the vertical distance from
levees to more accurately analyze and depict the flood the BFE (also known as the 1-percent-annual-
hazard in an area impacted by a levee system. These chance flood elevation) up to the top of the
procedures, known as the “levee analysis and mapping levee.
procedures,” offer five different ways to analyze a levee
reach (or, section of levee). By applying one of these 1-percent-annual-chance flood is often
procedures, the community can more accurately referred to as a “100-year flood,” which means
understand their risk and take steps to reduce that risk. there is a 1 in 100, or 1-percent chance of a
The Code of Federal Regulations (CFR) Section 65.10, is the flood at that level occurring in any given year.
procedure guidance followed and will be referenced This is the flood level FEMA depicts on its flood
throughout this document. hazard maps.

In the simplest terms, the Freeboard Deficient procedure is

applied when a levee reach meets the regulatory
requirements of 65.10 except freeboard, meaning that the
levee is not tall enough.
PROCEDURE OVERVIEW
One such procedure, called Freeboard Deficient, applies to levee reaches that are above the Base Flood
Elevation (BFE), the level that water is expected to reach during a 1-percent-annual-chance flood, but
below the freeboard requirements. Essentially, this means the reach meets all the requirements set by
65.10, except the freeboard is not high enough (see call out box). The benefit of this procedure is that it
allows for the height of the levee to be considered during the flood mapping process, even if it is not
quite high enough, to ultimately create a more accurate picture of a community’s risk. It can be applied
to one or more reaches in a levee system or to an entire system.

The yellow line shows the height of the levee. While it is above the BFE, it does not meet the red line,
which is the required freeboard the levee would need to meet 65.10.
WHY FREEBOARD IS NECESSARY
Flood risk is dynamic and constantly changing. While levee
systems are designed to manage a certain amount of floodwater, Freeboard Deficient Procedure
they can be overtopped or fail during flood events that exceed the Documentation
level for which the levee was designed. Freeboard helps reduce Levee documentation for this reach
the likelihood of overtopping (flood water runs over the levee) submitted to FEMA must
during the design event, and it controls overtopping locations, demonstrate:
helping to reduce the risk of catastrophic flooding.
• Elevation information for the top
RESULTING ZONE DESIGNATION of the levee (crest), showing that
The resulting designation from the Freeboard Deficient procedure the levee crest is above the BFE.
is Zone D, which represents possible, but undetermined, flood • Operations and Maintenance
Plan information.
hazards. Zone D is depicted on a Flood Insurance Rate Map (FIRM)
but does not carry the mandatory federal flood insurance • Structural design requirements.
requirement, although some lenders may require insurance. These • Inspection Reports.
zone designations determined in each reach may be impacted by
FEMA will use the documentation
flooding from adjacent or other reaches, and localized interior
received to assist in applying this
drainage flooding.
procedure.
Property owners should understand that Zone D indicates an
undetermined hazard, which could still be significant. Flood insurance is strongly recommended.
Communities and residents should take proactive steps to mitigate risk. There are several options to
help keep insurance costs low:

• Newly Mapped Procedure: This cost-saving rating option helps reduce the financial impact of a
map change for properties newly mapped as high-hazard. (This option applies if the structure is
in Zone D, but is being newly mapped into a Zone A or V. It does not apply if the building is in the
Zone X and is being mapped into a Zone D.)
• Grandfathering: This rating option may provide a lower cost by locking in the current flood zone
or BFE for future rating when the policy renews in the future. The easiest way to take advantage
of grandfathering is to buy a policy before the new flood maps take effect.
• Community Rating System (CRS) credits: This program recognizes communities for their
additional efforts beyond the minimum standards to reduce flood damage to insurable
property. Under the CRS, communities that choose to participate may reduce the flood
insurance premium rates for property owners in the community by taking these additional
actions.

To purchase flood insurance, individuals need to contact their insurance agent. Property owners with
questions about flood insurance can call the National Flood Insurance Program, toll free, at 1-888-
FLOOD29 (356-6329) or visit floodsmart.gov. See the Levees and Flood Insurance Fact Sheet for more
information.
OTHER CONSIDERATIONS
Because the levee reaches being analyzed must meet all requirements for an accredited levee system
other than freeboard, the Freeboard Deficient procedure requires more data than some other
procedures. The financial commitment from the community and/or levee owner will depend on multiple
factors, including the size of the levee and the availability of existing data.
 An “interior drainage” analysis must be conducted for all levee systems. Interior drainage represents all
water runoff, seepage (water going under the levee), and water collection on the landward side of the
levee system. The analysis must identify and demonstrate the potential runoff paths from the impacted
drainage area. Any areas of residual risk and interior drainage flooding that fall within these areas are
mapped as a SFHA, regardless of whether the levee system is accredited or not. This is a critical analysis
because it shows that risk can still exist, even if the levee meets certain 65.10 requirements.
And remember, there is always more a community can do to reduce their risk, especially when it comes
to floodplain management, building codes and zoning. See the Levee Risk and Mitigation Fact Sheet for
more information.

For more information on other procedures for analyzing and mapping hazards associated with non-accredited levees, visit:
https://www.fema.gov/media-library/assets/documents/33587

The Code of Federal Regulations can be accessed at: https://www.govinfo.gov/help/cfr