1.1 Hazard Mitigation
Hazard mitigation is commonly defined as any sustained action to reduce or eliminate the long-term risk to human life from natural hazards and their effects.
For the Local Multi-Hazard Mitigation (MHM) Plan hazard refers to an extreme natural event that poses a risk to people, infrastructure, or resources. Risk can be defined as “hazard; danger; peril; exposure to loss, injury, or destruction” or “the possibility of suffering harm or loss.” The Town’s hazard risk assessment determines which areas of Town may be affected by a natural hazard, how likely it is that a given hazard may occur, and how intense that hazard might be.
Vulnerability can be defined as “susceptibility to injury or attack.” Vulnerability indicates what is likely to be damaged by the identified hazards and how severe the damage might be. For example, if an area is determined to be at risk of flooding, vulnerability estimates could include potential residential property losses, impacts to the tax base and damages to public infrastructure in that area.
Hazard mitigation planning is the process that the Town of Dennis is undertaking to continuously analyze our Town’s risk from natural hazards, to coordinate available resources, and to develop a strategy to implement actions to eliminate risk.
1.2 Plan Purpose and Benefits
The purpose of this plan is to fulfill the federal regulations for the Federal Emergency Management Agency’s (FEMA) Mitigation Planning, under the Code of Federal Regulations (CFR) Title 44 Part 201. All cities and towns are required to adopt local multiple-hazard mitigation plan in order to remain eligible for the Federal Emergency Management Agency (FEMA) Hazard Mitigation Grant funds (available after a disaster is declared) and to be eligible for other federal hazard mitigation funds. The plan attempts to provide a process for the Town of Dennis to accomplish the following:
• Identify risks
• Assess the town’s vulnerability
• Reduce future damages
• Meet community needs
• Achieve multiple objectives
• Promote public participation
• Increase funding eligibility
• Provide a guide post for disaster recovery
• Promote cooperation
A Planning Team has been created within the town which included Management Level staff from the Dennis Planning, Health, Police, Fire, Engineering, Public Works, Natural Resources, Beach, Harbor and Building Departments. Public involvement is being solicited in numerous fashions, with the plan being developed within the public realm through the use of WordPress and other publicly available information dissemination medium, Public Hearings will be held by the Board of Selectmen and Dennis Planning Board, and regular press releases on the planning process will be issued. Benefits available to the Town of Dennis by creating, adopting, and implementing a hazard plan and are listed below.
• Make funding available for initiatives that would otherwise not be available.
• Support pre-disaster and post-disaster decision making efforts in times of crisis.
• Educate residents and officials on vulnerable areas.
• Connect hazard mitigation planning to community planning and the Dennis Local Comprehensive Plan where possible.
Before the Disaster Mitigation Act of 2000 the following reflected the thinking of state and local officials to emergency planning for natural disasters:
Since the Act, this process has been revised to the following:
The Town of Dennis chose to participate in the Regional Multi-Hazard Mitigation planning initiative as coordinated by the Cape Cod Commission (Commission). The Commission convened a regional Multi-Hazard Community Planning Team to advise on the regional Multi-Hazard Mitigation Plan (MHM) and to provide planning assistance to local communities in development of local MHM plans.
1.3 Planning Process
The Dennis Town Planner was assigned the task of developing the Dennis Multi-Hazard Mitigation Plan and for coordinating among town departments and boards including the Dennis Engineering, Health, Fire, Police, Harbor, Beach and Recreation and Natural Resources Departments. Together these departments and Boards comprised the Dennis Pre-Disaster Hazard Planning Team.
As part of the planning process the Town Planner and Health Director participated in the Regional MHM planning process and also served as a liaison for the town.
Public information is being made available to residents through a number of venues. These included the use of a Weblog through WordPress. The weblog included posting draft documents and exchanging discussions with residents and property owners of Dennis. Public forums will be held through-out the planning process to garner early, mid-way and final input on the work effort. A draft plan will be presented at a public hearing held, that will be advertised in local newspapers and posted in Town Hall. Additionally the draft document will be presented to the Board of Selectmen during a public meeting and posted on the Town’s website for a comments. Public comment will be reviewed, considered, and incorporated into the plan. The final draft will be presented to the Board of Selectmen at a public meeting, for their review and comment. The Board of Selectmen will adopt the plan.
1.4 Existing Town plans goals that support hazard mitigation
While hazard mitigation is not specifically mentioned in either the Dennis Local Comprehensive Plan (adopted in September 2002) and the Open Space and Recreation Plan (completed July 2009), significant elements of a hazard mitigation planning strategy are found in these documents. In addition, the basic town data necessary for producing this document are drawn from these two plans.
Both the Local Comprehensive Plan and the Opens Space and Recreation Plan identify the need to limit new development within areas prone to flooding. The Local Comprehensive Plan establishes the following goal and performance standards for the town to pursue relative to flooding:
2.2.2 Goal: To limit development in areas subject to coastal storm flowage, particularly high hazard areas, in order to minimize the loss of life and structures and the environmental damage resulting from storms, flooding, erosion and relative sea level rise.
MINIMUM PERFORMANCE STANDARDS
2.2.2.1 Except as specified in Section 2.2.2.5, no development or redevelopment shall be permitted within FEMA V-flood zones. Existing structures may be reconstructed or renovated provided there is no increase in floor area or intensity of use. As an exception, where there is no feasible alternative, water-dependent structures and uses may be permitted subject to the approval of all permitting authorities.
2.2.2.2 In order to accommodate possible relative sea level rise and possible increased storm intensity, ensure human health and safety, and protect the integrity of coastal landforms and natural resources, all new buildings, including replacements, or substantial improvements to existing structures within FEMA A-zones shall be designed to accommodate the documented relative sea level rise rate in Massachusetts of at least one foot per 100 years, except as provided in Section 2.2.2.11, and in V-zones shall be designed to accommodate a relative sea level rise rate of two feet per 100 years.
2.2.2.3 Except as specified in Section 2.2.2.5, no new development or redevelopment shall be permitted on barrier beaches and/or coastal dunes as defined by the Wetlands Protection Act and associated regulations and policies. Existing structures may be reconstructed or renovated, provided there is no increase in floor area or intensity of use, or conversion from seasonal to year round use.
A. If the reconstruction/renovation is greater than 50% of the replacement value of a structure, and is located in the A-zone, the lowest floor shall be elevated at least one foot above the 100 year flood elevation, except as provided in Section 2.2.2.11. If the reconstruction/renovation is greater than 50% of the replacement value of a structure, and is located in the V-zone, the lowest floor shall be elevated at least two-feet above the 100 year flood elevation, except as provided in Section 2.2.2.11. On a barrier beach or coastal dune and in either the V or A-zone, the structure shall be on open pilings, to allow for storm flowage and beach and dune migration.
B. If the structure is on a barrier beach or dune and is outside the 100 year coastal floodplain, and is proposed to be reconstructed/renovated greater than 50% of its replacement value before reconstruction, it shall be elevated at least two feet above grade on open pilings to allow dune migration.
Water-dependent public recreational facilities in these locations may be developed providing that it can be demonstrated that the proposed development will not compromise the integrity of coastal resources, and is appropriately elevated on pilings or floodproofed.
2.2.2.4 Development and redevelopment on or within 100 feet landward of a coastal bank or dune shall be designed to have no adverse effect on the height, stability, or the use of the bank or dune as a natural sediment source. In areas where banks or dunes are eroding, the setback for all new buildings and septic systems to the top of the coastal bank or dune crest shall be at least 30 times the average annual erosion rate of the bank or dune. This rate shall be determined by averaging the erosion over the previous 30-year period at a minimum. In instances where shoreline erosion rates are indicative of bank/dune erosion rates, MCZM shoreline change maps may be used in determining the setback.
2.2.2.5 Where fire, storm, or similar disaster has caused damage to or loss of buildings in FEMA A- and V-zones, on barrier beaches, coastal banks or coastal dunes of greater than 50 percent of their market value, all reconstruction shall be in compliance with current applicable regulations and shall be designed in accordance with Sections. 2.1.1.4, 2.2.2.2, 2.2.2.4, 2.2.3.1, and 2.2.3.2. Any reconstruction shall not enlarge or expand the use of an existing structure.
2.2.2.6 Except as provided in Section 2.2.2.11, no new public infrastructure or expansion of existing infrastructure shall be made in flood hazard zones (FEMA A- and V-zones) unless it is shown that there is an overriding public benefit provided, and provided that such infrastructure will not promote new growth and development in flood hazard areas.
2.2.2.7 Where land subject to coastal storm flowage is significant to the interests of flood control and storm damage prevention, no activity shall increase the elevation or velocity of flood waters or increase flows due to a change in drainage or flowage characteristics on the subject site, adjacent properties, or any public or private way.
2.2.2.8 Within the 10-year floodplain, no activity shall impede the landward migration of other resource areas within this area of the floodplain. Relative sea level rise and the landward migration of resource areas in response to relative sea level rise shall be incorporated into the design, construction, and location of structures and other activities proposed.
2.2.2.9 New structures, additions to existing structures, solid foundations, new or proposed expansions of roads, driveways or parking lots, or impermeable paving of existing ways, new or proposed expansions of coastal engineering structures, and new septic systems shall be prohibited within the V-zone of a beach, dune, barrier beach, or coastal bank where they will result in alterations to vegetative cover, interruptions in the supply of sediment to other wetland resources, and/or changes to the form or volume of a dune or beach.
2.2.2.10 Notwithstanding Sections 2.2.2.6, 2.2.2.7, 2.2.2.8 and 2.2.2.9, the following activities may be permitted provided the applicant demonstrates that best available measures are utilized to minimize adverse impacts on all critical characteristics of land subject to coastal storm flowage, and provided that all other performance standards for underlying resource areas are met: beach, dune, and bank nourishment and restoration projects, including fencing and other devices to increase dune development and plantings compatible with natural vegetative cover; elevated pedestrian walkways and elevated decks with appropriate height and spacing between planks to allow sufficient sunlight penetration; boat launching facilities, navigational aids, piers, docks, wharves and moorings; improvements necessary to maintain the structural integrity/stability of existing coastal engineering structures; projects that will restore, rehabilitate or create a saltmarsh or freshwater wetlands; projects that are approved, in writing, or conducted by the Division of Marine Fisheries that are specifically intended to increase the productivity of land containing shellfish, including aquaculture, or to maintain or enhance marine fisheries, and projects that are approved, in writing, or conducted by the Division of Fisheries and Wildlife that are specifically intended to enhance or increase wildlife habitat.
2.2.2.11 In order to allow alternative means of reducing flood hazard risks in areas where there are serious concerns about protecting the character of historic villages, the following shall apply in certified Village Growth/Activity centers located in FEMA A-zones for which a flood Hazard Mitigation Plan has been prepared and adopted by the town and has been found by the Cape Cod Commission to be consistent with state coastal policies and regulations. Notwithstanding Sections 2.1.2.5, 2.2.2.2, 2.2.2.3A and 2.2.2.6, the following standards shall apply to such certified Village Growth/Activity centers located within FEMA A-zones:
a. Development and redevelopment shall be subject to the requirements of the adopted Flood Hazard Mitigation Plan and any related policies and regulations.
b. Public infrastructure and private sewage treatment facilities (PSTFs) may be constructed in FEMA A-zones (but not within a V- or an AO-zone) provided that these facilities are consistent with the Flood Hazard Mitigation Plan and the certified Local Comprehensive Plan; further provided that the infrastructure is itself flood-resistent; and provided that such infrastructure will not promote new growth and development outside such certified Growth/Activity center.
c. All new buildings or substantial improvements to existing structures in the FEMA A-zone shall comply with FEMA and State Building Code regulations for elevation and flood-proofing.
Since the adoption of these recommendations, the State Building Code has been amended to require a two-foot clearance above Base Flood Elevation. The Town of Dennis actively pursues consistency in construction with the State Building Code.
In addition to flooding, other significant natural hazards have become evident that have severely impacted local services and residents. These hazards include blizzards, wind, fire, etc.
1.5 Community Goal(s) for Hazard Mitigation
• Goal #1: Reduce the loss of life, property, infrastructure, and environmental and cultural resources in the Town from natural disasters.
• Goal #2: Coordinate our local hazard mitigation planning and activities with those of Barnstable County and neighboring towns.
• Goal #3: Seek for and take advantage of funding opportunities to implement the Multi-Hazard Mitigation Plan.
• Goal #4: Mitigate potential financial losses incurred by municipal, residential and commercial establishments due to disaster.
• Goal #5: Develop and conduct hazard awareness information and educational programs for the public.
1.6 Plan Implementation
The Town of Dennis Planning Board and Board of Selectmen will be responsible for adopting the Dennis MHMP and all future updates or changes. These governing bodies have the authority to promote sound public policy regarding hazards. The Dennis MHMP will be assimilated into other town plans and documents as they come up for review according to each plan’s review schedule.
1.7 Monitoring, Evaluating and Updating the Plan
Section §201.6(c)(4)(i) of the mitigation planning regulation requires that the plan maintenance process shall include a section describing the method and schedule of monitoring, evaluating, and updating the mitigation plan within a five-year cycle.
Monitoring the Plan
The Dennis Town Planner, Town Administrator, Board of Selectmen and Planning Board are responsible for monitoring the plan. On an annual basis these entities will seek a report from the agencies and departments responsible for implementing the mitigation projects in the plan. The compiled report will be provided to the Board of Selectmen and Planning Board as information and noticed to the public. A report outlining all five years of the plan monitoring will be included in the plan update.
Evaluating the Plan
The Town Planner will evaluate the plan during the five-year cycle of the plan. On an annual basis, concurrent with the report above the evaluation should assess, among other things, whether:
The goals and objectives address current and expected conditions.
The nature, magnitude and/or types of risks have changed.
The current resources are appropriate for implementing the mitigation projects in the plan.
There are implementation problems, such as technical, political, legal or coordination issues with other agencies.
The outcomes have occurred as expected (a demonstration of progress).
The agencies and other partners participated as originally proposed.
Updating the Plan
The mitigation planning regulations at §201.6(d)(3) direct the update of Mitigation Plans. Plans must be updated and resubmitted to FEMA for approval every five years in order to continue eligibility for FEMA hazard mitigation assistance programs. Plan updates must demonstrate that progress has been made in the past five years to fulfill commitments outlined in the previously approved plan. This involves a comprehensive review and update of each section of the plan and a discussion of the results of evaluation and monitoring activities described above. Plan updates may validate the information in the previously approved plan or may involve a major plan rewrite. A plan update may not be an annex to this plan; it must stand on its own as a complete and current plan.
Table 3. Continued Plan Development
| Hazard | Status | Hazard Identification Completion Date | Vulnerability Assessment Completion Date |
| Severe Weather – Hurricane | Completed | 2009 | 2009 |
| Floods | Completed | 2009 | 2009 |
| Sea Level Rise | Completed | 2009 | 2009 |
| Severe Weather – Blizzard | Completed | 2009 | 2009 |
| Earthquake | Completed | 2009 | 2009 |
| Fire – Wild Fire | Completed | 2009 | 2009 |
| Fire – Urban | Future Addition | 2009 | 2009 |
| Wind | Future Addition | 2009 | 2009 |
Continued Public Involvement
The following methods will be used for continued public involvement.
A copy of the MHMP will be put online at the Dennis Planning Department Weblog (http://dennismaplanningdept.wordpress.com/mhm-plan/) and the Town of Dennis Website (http://www.town.dennis.ma.us).
Places where the hazard plan will be kept:
Planning Office
Fire Department Headquarters
Public Works Department
Town Clerk’s Office
Dennis Public Library
On an annual basis the town will review the plan, which will be advertised to the public using the same method established under the public involvement section of this plan. The public will be involved in the process described in the above section on Monitoring, Evaluating and Updating the Plan.
Next: Draft Multi-Hazard Mitigation Plan Section 2 Hazard Analysis and Risk Assessment
Revised October 12, 2009
