Billing Code: 9111-66-P
DEPARTMENT OF HOMELAND SECURITY
Federal Emergency Management Agency
44 CFR Part 9
[Docket ID FEMA-2023-0026]
RIN 1660-AB12
Updates to Floodplain Management and Protection of Wetlands Regulations to
Implement the Federal Flood Risk Management Standard
AGENCY: Federal Emergency Management Agency, Department of Homeland
Security.
ACTION: Final rule.

SUMMARY: On October 2, 2023, the Federal Emergency Management Agency
(FEMA) published a notice of proposed rulemaking (NPRM) and supplementary policy
that proposed to implement the Federal Flood Risk Management Standard (FFRMS) and
update the agency's 8-step decision-making process for floodplain reviews by changing
how FEMA defines a floodplain with respect to certain actions and how FEMA uses
natural systems, ecosystem processes, and nature-based approaches when developing
alternatives to locating a proposed action in the floodplain. After a careful review of the
public comments received, FEMA is now issuing a final rule that implements the
proposed rule, with some minor amendments.
DATES: This rule is effective September 9, 2024.
FOR FURTHER INFORMATION CONTACT: Portia Ross, Policy and Integration
Division Director, Office of Environmental Planning and Historic Preservation,
Resilience, DHS/FEMA, 400 C St. SW, Suite 313, Washington, DC 20472–3020.
Phone: (202) 709–0677; Email: fema-regulations@fema.dhs.gov.

SUPPLEMENTARY INFORMATION:
Contents
I. Executive Summary
A. Purpose of the Regulatory Action
B. Summary of the Notice of Proposed Rulemaking (NPRM)
C. Summary of Changes from the NPRM to the Final Rule
II. Background and Legal Authority
A. Executive Order 11988, “Floodplain Management”
B. Statutory Authority to Require FFRMS Under FEMA Grant Programs
C. 44 CFR Part 9, “Floodplain Management and Protection of Wetlands”
D. Executive Order 13690, the Federal Flood Risk Management Standard and
Subsequent Amendments to Executive Order 11988, and Revisions to the 1978
Guidelines
E. Substantive Components of the FFRMS
F. Summary of the 2023 Proposed Rule and Proposed FFRMS Policy
G. Summary of FEMA’s Final Rule and Updated Policy
III. Discussion of Public Comments and FEMA’s Responses
A. Summary of Public Comments
B. Comments in Support of the Rule
C. Comments in General Opposition to the Rule
D. FEMA’s Authority for Part 9 and Revisions
E. Definitions
F. FFRMS Applicability
G. FFRMS Approaches
H. FEMA’s FFRMS Policy Approach
I. The FFRMS and Floodplain/Wetland Determination Data
J. FFRMS Implementation
K. Emphasis on Nature-Based Approaches
L. Other 8-Step Process Comments
M. Other Comments
N. Accessibility
O. Regulatory Impact Analysis Comments
I. Executive Summary
A. Purpose of the Regulatory Action

The purpose of this regulatory action is to finalize a rulemaking that will improve
the preparedness and resilience of communities and Federal assets against the increasing
impacts of flooding. All Federal agencies, including FEMA, have long taken action to
reduce the risk of flood loss, to minimize the impact of floods on human safety, health,
and welfare, and to restore and preserve the natural and beneficial values served by
floodplains when carrying out certain agency functions. Federal agencies accomplish this
by applying the longstanding 8-step decision-making process to any action they take in
floodplains to ensure they avoid, to the extent possible, the long- and short-term adverse
impacts associated with the occupancy and modification of floodplains, and to avoid
direct or indirect support of floodplain development wherever there is a practicable
alternative.
This framework was originally established in 1977 by Executive Order 11988,
“Floodplain Management,” (42 FR 26951) which was issued in furtherance of the
National Environmental Policy Act of 1969 (NEPA) (42 U.S.C. 4321 et seq.), the
National Flood Insurance Act of 1968 as amended (NFIA) (42 U.S.C. 4001 et seq.), and
the Flood Disaster Protection Act of 1973, as amended (Flood Disaster Protection Act)
(Pub. L. 93-234, 87 Stat. 975). Executive Order 11988 was supplemented by guidance
called “Floodplain Management Guidelines” issued in 1978 by the U.S. Water Resources
Council (“1978 Guidelines”).1 FEMA implemented Executive Order 11988 in 1980
through the promulgation of regulations at 44 CFR part 9, “Floodplain Management and
Protection of Wetlands,”2 which applies the 8-step decision-making process to all actions
FEMA directly takes and to all actions that it funds through grants to eligible State, local,

42 FR 6030, Feb. 10, 1978. A PDF copy of the 1978 Guidelines can be found at this link:
hud.gov/sites/documents/DOC_14216.PDF (last accessed Jan. 24, 2024).
2 FEMA published an interim final rule on December 27, 1979 (44 FR 76510) and a final rule on
September 9, 1980 (45 FR 59520). Note that this part also implements a related Executive Order 11990,
“Protection of Wetlands.” See 42 FR 26961, May 25, 1977.
Tribal, and territorial (SLTT) governments, certain private non-profits, and individuals
and households for pre- and post-emergency or disaster-related projects.
The first step in the 8-step process is to determine whether the action FEMA
proposes to take or fund will occur in a floodplain or wetland.3 Section (6)(c) of
Executive Order 11988 defined the term “floodplain” to mean, at a minimum, “that area
subject to a one percent or greater chance of flooding in any given year,” which is
recognized as the “base floodplain.” Executive Order 11988 and the base floodplain
definition remained unchanged from 1977 until 2015. In 2015, President Barack Obama
amended Executive Order 11988 by adding a new flood risk reduction standard to the
existing 8-step decision-making process to improve the Nation’s resilience against the
increasing impacts of flooding.4 The flood risk reduction standard, called the Federal
Flood Risk Management Standard (FFRMS), is a flexible framework to define the
floodplain that allows agencies to choose among several approaches to expand the base
floodplain to a higher vertical elevation and corresponding horizontal extent for all
Federally funded projects. Federally funded projects are defined as actions where
Federal funds are used for new construction, substantial improvement, or repairs to
address substantial damage to structures and facilities.5 The amendments also direct
agencies to use natural systems, ecosystem processes, and nature-based approaches when

Any action FEMA takes in a floodplain or wetland, including its provision of grants for disaster
assistance, undergoes an analysis pursuant to Executive Orders 11988 and 11990 (unless the action is
specifically exempted from the requirements of the Orders). The grant recipient, therefore, generally
provides information to FEMA about the practicability of alternatives outside the floodplain and wetland
and other information to assist in the analysis.
4 Executive Order 13690, “Establishing a Federal Flood Risk Management Standard (FFRMS) and a
Process for Further Soliciting and Considering Stakeholder Input.” 80 FR 6425, Feb. 4, 2015. In 2017,
President Donald Trump revoked the amendments to Executive Order 11988. See Executive Order 13807,
“Establishing Discipline and Accountability in the Environmental Review and Permitting Process for
Infrastructure Project,” 82 FR 40463, Aug. 24, 2017. In 2021, President Joseph Biden reinstated the
amendments. See Executive Order 14030, “Climate Related Financial Risk,” 86 FR 27967, May 25, 2021.
5 See “Guidelines for Implementing Executive Order 11998, Floodplain Management, and Executive Order
13690, Establishing a Federal Flood Risk Management Standard and a Process for Further Soliciting and
Considering Stakeholder Input,” 80 FR 64008 (Oct. 22, 2015) (providing notice of the availability of the
Revised Guidelines in the docket for the rulemaking at https://www.regulations.gov/document/FEMA2015-0006-0358 (main content) and https://www.regulations.gov/document/FEMA-2015-0006-0372
(appendices)) also available at https://www.fema.gov/sites/default/files/documents/fema_implementingguidelines-EO11988-13690_10082015.pdf (last accessed Mar. 11, 2024).
developing alternatives to locating the action in the floodplain. The Water Resources
Council then updated the 1978 Guidelines and issued the “Guidelines for Implementing
Executive Order 11988, Floodplain Management, and Executive Order 13690,
‘Establishing a Federal Flood Risk Management Standard and a Process for Further
Soliciting and Considering Stakeholder Input’” (“Revised Guidelines”)6 to provide
additional information on the use of the FFRMS.
FEMA first partially implemented the FFRMS in its grant programs through
policy using an interim approach that applied higher elevation requirements to eligible
projects in existing floodplains.7 FEMA then proposed to fully implement the FFRMS in
its October 2, 2023 NPRM and supplementary policy.8 FEMA proposed to prioritize the
use of the Climate-Informed Science Approach (CISA) in its FFRMS implementation.
The CISA establishes the required vertical elevation and corresponding horizontal
floodplain, through the best-available, actionable hydrologic and hydraulic data and
methods that integrate current and future changes in flooding based on climate science, in
accordance with the Revised Guidelines. When such data is not available, FEMA’s
NPRM and supplementary policy proposed the use of other approaches depending on the
criticality of the action. FEMA also proposed to require the use of natural systems,
ecosystem processes, and nature-based approaches where possible.
FEMA has authority to require application of the FFRMS as a condition of
funding in its grant programs based on the grant programs’ authorizing statutes.
Congress granted FEMA the authority to provide Federal assistance through multiple

80 FR 64008, Oct. 22, 2015.
See FEMA Policy 104–22–003, “Partial Implementation of the Federal Flood Risk Management Standard
for Public Assistance (Interim),” June 3, 2022, found at
https://www.fema.gov/sites/default/files/documents/fema_fp-104-22-0003-partial-implemetnation-ffrmspa-interim.pdf (last accessed Jan. 24, 2024) and FEMA Policy 206–21–003–0001, “Partial Implementation
of the Federal Flood Risk Management Standard for Hazard Mitigation Assistance Program,” Dec. 7, 2022
found at https://www.fema.gov/sites/default/files/documents/fema_policy-fp-206-21-003-0001implementation-ffrms-hma-program_122022.pdf (last accessed Jan. 24, 2024).
8 88 FR 67870, Oct. 2, 2023; 88 FR 67697, Oct. 2, 2023.
6
grant programs under the Robert T. Stafford Disaster Relief and Emergency Assistance
Act (Stafford Act),9 the NFIA,10 the Homeland Security Act of 2002,11 the Federal Fire
Prevention and Control Act of 1974,12 the Earthquake Hazards Reduction Act of 1977,13
and various other appropriations acts. Under each of these authorities, FEMA may set
grant eligibility criteria consistent with the respective purposes of such programs and
FEMA’s mission, including to protect Federal investments from the risks of further
damage.14 Under the Stafford Act and the NFIA, which authorize the programs that fund
the majority of the actions subject to the FFRMS, FEMA has general rulemaking
authority.15 Further, FEMA has explicit authority under the Stafford Act to set the
minimum standards for safe land use and construction standards required in the repair or
construction of private and public facilities.16
This rule is an important first step toward mitigating future flood risk that will
ultimately benefit communities by allowing them to recover from future disasters more
efficiently and effectively. The United States is experiencing increased flooding and

42 U.S.C. 5121 et seq.
42 U.S.C. 4001 et seq.
11 6 U.S.C. 101 et seq; see also 6 U.S.C. 314(a)(12), which specifically charges the Administrator with
supervising various grant programs authorized under the HSA. Such grant programs have long been
governed by floodplain management regulations at 44 CFR part 9, see, e.g., 44 FR 76510 (Dec. 27, 1979),
45 FR 59520 (Sept. 9, 1980). See also, e.g., 2 CFR 200.300(a) (directing Federal awarding agencies to
manage and administer Federal awards in a manner so as to ensure that Federal funding is expended and
associated programs are implemented in full accordance with the U.S. Constitution, Federal Law, and
public policy requirements including, but not limited to, those protecting public welfare and the
environment; and requiring the Federal awarding agency to communicate to the non-Federal entity all
relevant public policy requirements, and incorporate them either directly or by reference in the terms and
conditions of the Federal award.).
12 15 U.S.C. 2229 and 2229a.
13 42 U.S.C. 7701 et seq.
14 See, e.g., 6 U.S.C. 609 (granting FEMA approval authority over grant funds for construction awards
under its Homeland Security Grant Program, State Homeland Security Grant Program, Urban Area Security
Initiative, Operation Stonegarden, Tribal Homeland Security Grant Program, and Nonprofit Security Grant
Program); 6 U.S.C. 1182(d)(1) (granting DHS the authority to determine the grant requirements for the
Intercity Bus Security Grant Program); 6 U.S.C. 1163(c)(1) (granting FEMA the authority to determine the
grant requirements for the Intercity Passenger Rail grant program); 46 U.S.C. 70101 (granting DHS
approval authority over grant funds for construction awards under the Port Security Grant Program); 6
U.S.C. 1135(c)(1) (granting DHS the authority to determine the grant requirements for the Transit Security
Grant Program); 33 U.S.C. 467f-2(c)(2)(A) (granting FEMA the authority to set the minimum eligibility
requirements for the Rehabilitation of High Hazard Dam Program).
15 See 42 U.S.C. 5164; 42 U.S.C. 4128(a) and (b).
16 42 U.S.C. 5165a(a)(1)-(2).
10

flood risk from changing conditions.17 The full extent of future changes in flood risk has
not yet been estimated across the full inventory of Federal, State, local, Tribal, and
territorial properties. However, in a survey of Federal properties alone, an assessment
identified over 40,000 individual Federal buildings and structures with a combined
replacement cost of $81 billion (in 2020 dollars) located in the current 1 percent
floodplain and approximately 160,000 structures with a total replacement cost of $493
billion (in 2020 dollars) located in the current 0.2 percent floodplain.18 Approximately
10,250 individual Federal buildings and structures were identified in coastal areas with a
combined replacement cost of $32.3 billion that would be severely impacted by an eightfoot sea-level rise scenario and over 12,195 individual Federal buildings and structures
were identified with a combined replacement cost of over $43.7 billion under a ten-foot
“worst case” sea level rise scenario.19 The Federal fiscal exposure presented above can
be reduced by enhancing resilience. This final rule will enhance resilience by ensuring
that actions subject to the FFRMS are designed to be resilient to both current and future
flood risks to minimize the impact of floods on human health, safety, and welfare and to
protect Federal investments by reducing the risk of flood loss.
B. Summary of the Notice of Proposed Rulemaking (NPRM)
On October 2, 2023, FEMA published the NPRM “Updates to Floodplain
Management and Protection of Wetlands Regulations to Implement the Federal Flood
Risk Management Standard.”20 FEMA also published “FEMA Proposed Policy: Federal
Flood Risk Management Standard (FFRMS)” with the proposed rule.21 The proposed

As a result of climate change, flood events are on the rise. Climate change is increasing flood risk
through (1) more “extreme” rainfall events,” caused by a warmer atmosphere holding more water vapor
and changes in regional precipitation patterns; and (2) sea-level rise. See Rob Bailey, Claudio Saffioti, and
Sumer Drall, Sunk Costs: The Socioeconomic Impacts of Flooding 3 and 8, Marsh McLennan (2021).
18 Federal Budget Exposure to Climate Risk. OMB Assessment found https://www.whitehouse.gov/wpcontent/uploads/2022/04/ap_21_climate_risk_fy2023.pdf (last accessed Jan. 24, 2024).
19 Id.
20 88 FR 67870, Oct. 2, 2023.
21 88 FR 67697, Oct 2, 2023.
rule sought to change how FEMA defines a floodplain with respect to certain actions
taken by the agency and require that FEMA use natural systems, ecosystem process, and
nature-based approaches, where possible, when developing alternatives to locating a
proposed agency action in the floodplain.
The FFRMS is a flood resilience standard that is required for Federally funded
projects and provides a flexible framework to increase resilience against flooding and
help preserve the natural values of floodplains and wetlands. For actions subject to the
FFRMS, the NPRM proposed to update the definition of “floodplain” to the definition
used in the Revised Guidelines, which allows the agency to establish the floodplain using
any of the following three approaches or a fourth approach resulting from any other
method in an update to the FFRMS:
• Approach 1: Climate-Informed Science Approach (CISA): Utilizing the bestavailable, actionable hydrologic and hydraulic data and methods that integrate
current and future changes in flooding based on climate science;
• Approach 2: Freeboard Value Approach (FVA): The elevation and
corresponding horizontal floodplain that result from using the freeboard22
value, reached by reached by adding 2 feet to the base flood elevation (BFE)
for non-critical actions (+2’ FVA) and from adding 3 feet to the BFE for
critical actions (+3’ FVA).
• Approach 3: 0.2-percent-annual-chance Flood Approach (0.2PFA): 0.2 percent
annual chance flood (also known as the 500-year flood); or
• Approach 4: the elevation and flood hazard area that result from using any other
method identified in an update to the FFRMS.

Freeboard is a factor of safety usually expressed in feet above a flood level for purposes of floodplain
management. See https://www.fema.gov/glossary/freeboard (last accessed June 11, 2024).
In many cases, each of these approaches would result in a larger floodplain and a
requirement to design projects to be resilient at a higher vertical elevation. For actions
that do not meet the definition of an action subject to the FFRMS, FEMA would continue
to use the historical floodplain definition, with minor clarifying revisions to help
stakeholders better understand the terminology. The NPRM further proposed the use,
where possible, of natural systems, ecosystem processes, and nature-based approaches in
the development of alternatives for all actions proposed in a floodplain. FEMA proposed
other edits to 44 CFR part 9, including edits to clarify the applicability of 44 CFR part 9
to specific FEMA programs and update the monetary thresholds in § 9.5, edits to
incorporate the use of the internet in public notice requirement in § 9.8, edits to
consolidate temporary housing requirements in § 9.13, and other clarifying edits to
update citations and remove outdated terminology.
C. Summary of Changes from the NPRM to the Final Rule
In this final rule, FEMA adopts the changes proposed in the NPRM and FFRMS
policy with clarifications in consideration of the relevant comments. Consistent with
comments received, FEMA’s edits in this final rule add a Federal agency (the National
Park Service) to the best available information sources list and incorporate the use of
Indigenous Knowledge by adding Indian Tribal governments to that list. The best
available information sources list appears at 44 CFR 9.7(c)(3). The list is a nonexhaustive list of resources that FEMA may use to make floodplain determinations.
Additional clarifying edits are included in §§ 9.5 and 9.7. The edits to the FFRMS policy
accompanying this final rule clarify the use of the 0.2PFA in coastal areas and clarify
FEMA’s use of the Federal Flood Risk Management Floodplain Determination Job Aid
(FFRMS Job Aid). FEMA describes these changes in detail below.
D. Impacts of the Final Rule

FEMA estimated the total impacts of this rule by analyzing the impact of the
FVA, 0.2PFA and CISA for FEMA’s Public Assistance (PA), Individual Assistance (IA),
and Hazard Mitigation Assistance (HMA) grant programs. FEMA did so by examining
the number of projects that would be subject to the proposed requirements in the first 10
years after the rule’s publication.23 FEMA’s analysis focused on the costs, benefits, and
transfer payments (i.e., impacts on FEMA grants) that would result over a 50-year period
from applying the requirements of the rule to those projects, for a total period of analysis
spanning 60 years. Tables 1 and 2 show the total impacts under the three approaches for
each of the affected programs.

FEMA used an average of the number of affected projects during the prior 10-year period to estimate the
average annual impacts of the future 10-year period.
Table 1: Summary of 60-Year Costs, Transfers, and Benefits by Approach and Program for Affected Projects in Years
1-10 (Low Estimate, 2022$)

Costs24
CISA
(prima
ry) (+5ft)
PA
IA
HMA
FVA
0.2PFA
FEMA
Admin
Not
Quanti
fied

Undiscounted

3% Discount Rate
Present Value
Annualized

7% Discount Rate
Present Value
Annualized

$149,215,620

$127,283,949

$4,599,146

$104,802,806

$7,465,023

$104,341,798
$1,681,740

$89,005,671
$1,434,557

$3,216,038
$51,835

$73,285,315
$1,181,184

$5,220,056
$84,135

$43,192,063

$36,843,704

$1,331,272

$30,336,295

$2,160,831

$756,606,840
$43,407,580

$645,400,983
$37,027,545

$23,320,247
$1,337,915

$531,408,984
$30,487,667

$37,851,850
$2,171,613

$7,752,811

$6,700,641

$242,114

$5,617,336

$400,118

Not Estimated: Increased resilience standard for approximately 26,985 facility projects over
10 years, Additional costs for Adding Requirements to Buildings with Basements, Diversion
of Projects Out of the Floodplain, Lifecycle maintenance costs for floodproofing, and Project
Delays and Forgone Projects
Transfer Payments from FEMA to Grant Recipients
CISA
Total
(prima
ry) (+5ft)
$122,766,330
$104,722,168
$3,783,922
$86,225,934
$6,141,806
PA
$88,690,530
$75,654,821
$2,733,633
$62,292,516
$4,437,048
IA
$1,681,740
$1,434,557
$51,835
$1,181,184
$84,135
HMA
FVA
Total
0.2PFA
Total
Benefits
PA
(CISA,
primar
y) (+1ft)
Not
Quanti
fied

$32,394,060

$27,632,790

$998,454

$22,752,232

$1,620,624

$50,748,250

$43,289,287

$1,564,170

$35,643,448

$2,538,855

$35,173,090

$30,003,358

$1,084,110

$24,704,108

$1,759,654

$65,817,290

$56,143,482

$2,028,630

$46,227,310

$3,292,735

Not Estimated: Damage Avoidance for approximately 12,322 IA and HMA structure projects
and 26,985 PA and HMA facility projects over 10 years, Potential Lives Saved, Increased
Public Health and Safety, Decreased Cleanup Time, Protection of Critical Facilities,
Reduction of Personal and Community Impacts
* FEMA focused its analysis on the projects impacted in the first 10 years after the rule's publication.
FEMA considered the resulting costs, benefits, and transfer payments of the proposed rule on those projects
over a 50-year period, for a total of 60 years. The costs and transfers occur in the first 10 years of the 60year period because that is when the initial investment to elevate or floodproof them to meet the proposed
requirements takes place. This is an upfront cost that occurs when the project is constructed. However, the
benefits of the proposed rule are realized over the 50-year useful life of the affected structures.

To obtain the total costs as in Section 7.12, add each individual approach to the FEMA admin cost. For
example, CISA + FEMA admin = total CISA cost.
Table 2: Summary of 60-Year Costs, Transfers, and Benefits by Approach and Program for Affected Projects in Years
1-10 (High Estimate, 2022$)

3% Discount Rate
Costs25
CISA
(primary)
(+5-ft)
PA
IA
HMA
FVA
0.2PFA
FEMA
Admin
Not
Quantifie
d

7% Discount Rate

Undiscounted

Present Value

Annualized

Present Value

Annualized

$189,853,700

$161,949,055

$5,851,699

$133,345,292

$9,498,082

$144,979,878
$1,681,740
$43,192,063
$74,555,130
$51,081,940

$123,670,781
$1,434,557
$36,843,704
$63,597,039
$43,573,931

$4,468,591
$51,835
$1,331,272
$2,297,949
$1,574,455

$101,827,801
$1,181,184
$30,336,295
$52,364,403
$35,877,816

$7,253,115
$84,135
$2,160,831
$3,729,876
$2,555,549

$9,093,061

$7,843,901

$283,423

$6,558,671

$467,169

Not Estimated: Increased resilience standard for approximately 26,985 facility projects
over 10 years, Additional costs for Adding Requirements to Buildings with Basements,
Diversion of Projects Out of the Floodplain, Lifecycle maintenance costs for
floodproofing, and Project Delays and Forgone Projects

Transfer Payments from FEMA to Grant Recipients

CISA
Total
(primary)
(+5-ft)
PA
IA
HMA
FVA
Total
0.2PFA
Total
Benefits
PA
(CISA,
primary)
(+1-ft)
Not
Quantifie
d

$157,308,700
$123,232,900
$1,681,740
$32,394,060

$134,187,512
$105,120,163
$1,434,557
$27,632,790

$4,848,592
$3,798,303
$51,835
$998,454

$110,487,049
$86,553,631
$1,181,184
$22,752,232

$7,869,907
$6,165,148
$84,135
$1,620,624

$61,609,580

$52,554,220

$1,898,939

$43,271,991

$3,082,230

$41,696,300

$35,567,787

$1,285,169

$29,285,736

$2,086,000

$77,506,550

$66,114,661

$2,388,918

$54,437,358

$3,877,53
Not Estimated: Damage Avoidance for approximately 12,322 IA and HMA structure
projects and 26,985 PA and HMA facility projects over 10 years, Potential Lives Saved,
Increased Public Health and Safety, Decreased Cleanup Time, Protection of Critical
Facilities, Reduction of Personal and Community Impacts
* FEMA focused its analysis on the projects impacted in the first 10 years after the rule's publication.
FEMA considered the resulting costs, benefits, and transfer payments of the proposed rule on those projects
over a 50-year period, for a total of 60 years. The costs and transfers occur in the first 10 years of the 60year period because that is when the initial investment to elevate or floodproof them to meet the proposed
requirements takes place. This is an upfront cost that occurs when the project is constructed. However, the
benefits of the proposed rule are realized over the 50-year useful life of the affected structures.

Table 3 provides the estimated number of structures and facilities affected by the
rule over the first 10 years, assuming that each approach is the only expansion option.
Structures, which are walled and roofed buildings, would comply with the FFRMS

To obtain the total costs as in Section 7.12, add each individual approach to the FEMA admin cost. For
example, CISA + FEMA admin = total CISA cost.
through elevating or floodproofing to the required height. Facilities, which are any
human-made or human-placed items other than a structure such as roads and bridges,
would require different mitigation measures to comply with the increased resilience
standard. The monetized impacts of this rule are representative of the floodproofing and
elevation mitigation measures that are required of structures. However, for reasons
explained in more detail later, FEMA was unable to monetize the impacts of the rule for
facilities.
Table 3: Estimated Number of Structures and Facilities Affected by the Final Rule in Years 1-10 For Each Approach as
if Each Approach Were the Only Expansion Option26
FFRMS
Approach
FVA
0.2PFA
CISA

PA

Structures
IA
HMA

1,434

1,434

1,154

1,924

7,755
7,712
10,398

Total
Structures

Facilities
PA
HMA

Total
Facilities

Total
Projects

10,088

26,144

26,985

37,073

9,834

26,144

26,985

36,819

13,476

26,144

26,985

40,461

Quantified estimates of the benefits of this rule are available for only nonresidential PA Category E projects, which are for structures. Due to the project-specific
nature of facilities projects and numerous options for making them resilient, FEMA could
not estimate the costs of improving flood resilience of facilities.27 Table 2 shows that the
total 60-year benefits for non-residential PA Category E projects in the first 10 years is
$54.4 million (7 percent). This benefit is for adding one foot of freeboard, assuming a
59-inch sea level rise (SLR).28 Although the cost for PA Category E projects is $133.3

These counts are based on the number of closed or obligated projects at the time of analysis. It can take several
years for a project to close out or reach the obligation status after the disaster year.

Category E projects are public buildings and contents. See Public Assistance Fact Sheet at
https://www.fema.gov/sites/default/files/2020-07/fema_public-assistance-fact-sheet_10-2019.pdf.
28 FEMA used one foot for benefits as the 2022 report, “A Benefits Analysis of Increased Freeboard for
Public and Nonresidential Buildings in Riverine and Coastal Floodplains,” only specifies monetary benefits
for an additional one foot over current requirements. FEMA included this number in the quantified benefits
because it is the only monetary benefit available for any freeboard level.
A Benefits Analysis of Increased Freeboard for Public and Nonresidential Buildings in Riverine and
Coastal Floodplains. FEMA. Draft, July 2022, page 16. Available at:
https://www.regulations.gov/document/FEMA-2023-0026-0003. .
million, this cost represents 5 feet of freeboard (FEMA’s assumption for CISA).29
FEMA does not have data to quantify the benefits of additional freeboard and thus the
quantified benefits represent only a portion of the increased risk reduction that would be
achieved through this rule. Ensuring projects are built to the height necessary to avoid
additional loss scenarios would provide additional unquantified benefits of avoided
damages to the structure, decreased cleanup time and disruption to the community, and
increased public health and safety. Moreover, FEMA’s use of CISA as its preferred
approach would use the best available and actionable scientific data to tailor future
flooding risk to each project ensuring that projects are built only to the height necessary
and thus maximizing net benefits. Accordingly, FEMA believes the benefits of the rule –
quantified and unquantified – would justify its costs.
II. Background and Legal Authority
The President issued Executive Order 11988 (42 FR 26951, May 25, 1977) as
amended by Executive Order 13690, “Establishing a Federal Flood Risk Management
Standard (FFRMS) and a Process for Further Soliciting and Considering Stakeholder
Input,” (80 FR 6425, Feb. 4, 2015) and Executive Order 14030, “Climate-Related
Financial Risk,” (86 FR 27967, May 25, 2021) in furtherance of the NFIA (42 U.S.C.
4001 et seq.); the Flood Disaster Protection Act of 1973, as amended (Pub. L. 93–234, 87
Stat. 975); and the NEPA (42 U.S.C. 4321 et seq.). Each agency is responsible for
implementing Executive Order 11988, as amended, as allowed by and consistent with
applicable law within their existing statutory authorities.30
Section II.A below describes Executive Order 11988, the 1978 Guidelines, and
the statutory authority underlying the Executive Order. Executive Order 11988, along
with the 1978 Guidelines, established an 8-step decision-making process by which
Costs for the FVA may be a better comparison because they represent 2 or 3 feet of freeboard, depending
on criticality. However, the number of projects using FVA and CISA differ, making such a comparison
difficult.
30 See 42 FR 26951, May 25, 1977 at Section 2(d); see also 80 FR 6425, Feb. 4, 2015 at Section 5(b).
Federal agencies carry out Executive Order 11988's direction to avoid the long- and
short-term adverse impacts associated with the occupancy and modification of the
floodplain, and avoid the direct or indirect support of floodplain development whenever
there is a practicable alternative.
Next, Section II.B describes FEMA’s statutory authority to require its grant
recipients to carry out repairs or construction in accordance with specific standards.
Section II.C describes FEMA’s implementing regulations at 44 CFR part 9, which closely
follow the model decision-making process under Executive Order 11988. Section II.D
describes the development of Executive Order 13690, the FFRMS, and additional
guidance in the Revised Guidelines issued in 2015, as well as subsequent amendments to
Executive Order 11988. Section II.E describes the substantive components of the
FFRMS. Section II.F. describes FEMA’s NPRM and supplementary policy
implementing the FFRMS.
A. Executive Order 11988, “Floodplain Management”
The President issued Executive Order 11988 (42 FR 26951, May 25, 1977) in
furtherance of the NFIA (42 U.S.C. 4001 et seq.); the Flood Disaster Protection Act of
1973, as amended (Pub. L. 93–234, 87 Stat. 975); and the NEPA (42 U.S.C. 4321 et
seq.). The NFIA, as amended by the Flood Disaster Protection Act establishes a multipurpose program to provide flood insurance, minimize exposure of property to flood
losses, minimize the damage caused by flood losses, and guide the development of
proposed construction, where practicable, away from floodplains.31 The NFIA and the
Flood Disaster Protection Act highlight coordination of flood insurance with land
management programs in flood-prone areas. NEPA requires Federal agencies to analyze
the reasonably foreseeable environmental effects of proposed major Federal actions and
evaluate a reasonable range of alternatives to those actions, which includes the evaluation

See 42 U.S.C. 4001 and 4102.

of the impacts of proposed actions in floodplains.32 NEPA mandates that agencies “attain
the widest range of beneficial uses of the environment without degradation, risk to health
or safety, or other undesirable and unintended consequences.”33
In furtherance of and consistent with this statutory foundation, Executive Order
11988 directs Federal agencies to avoid, to the extent possible, the long- and short-term
adverse impacts associated with the occupancy and modification of floodplains, where
there is a practicable alternative. The Executive Order directs each Federal agency to
provide leadership and take action to reduce the risk of flood loss, to minimize the impact
of floods on human safety, health, and welfare, and to restore and preserve the natural
and beneficial values served by floodplains in carrying out its responsibilities for: (1)
acquiring, managing, and disposing of Federal lands and facilities; (2) providing federally
undertaken, financed, or assisted construction and improvements; and (3) conducting
Federal activities and programs affecting land use, including but not limited to water and
related land resources planning, regulating, and licensing activities. Each agency has a
responsibility to evaluate the potential effects of any actions it may take in a floodplain;
to ensure that its planning, programs, and budget requests reflect consideration of flood
hazards and floodplain management; and to prescribe procedures to implement the
policies and requirements of the Executive Order.
To meet this direction, each agency, before taking an action, must determine
whether the proposed action will occur in a floodplain.34 Section (6)(c) of Executive
Order 11988 defined the word “floodplain” to mean “the lowland and relatively flat areas
adjoining inland and coastal waters including floodprone areas of offshore islands,

See 42 U.S.C. 4332(2)(C).
See 42 U.S.C. 4331(b)(3).
34 Any action FEMA takes in a floodplain, including its provision of grants for disaster assistance,
undergoes an analysis pursuant to FEMA’s implementation of Executive Order 11988 (unless the action is
specifically exempted from the requirements of the Order and the implementing regulations). The grant
recipient, therefore, generally provides information to FEMA about the practicability of alternatives outside
the floodplain and other information to assist in the analysis.
32
including at a minimum, the area subject to a one percent or greater chance of flooding in
any given year.”35 If the action will occur in a floodplain, the agency must consider
alternatives to avoid adverse effects and incompatible development in the floodplain. If
the agency finds that the only practicable alternative requires the action to occur in the
floodplain, the agency must, prior to taking the action, design or modify the action to
minimize potential harm to or within the floodplain. Additionally, the agency must
prepare and circulate a notice explaining why the proposed action is located in the
floodplain. Particularly relevant to FEMA, the Executive Order also requires agencies to
provide appropriate grant funding guidance to applicants to encourage them to evaluate
the effects of their proposals in floodplains, prior to submitting grant applications.
Executive Order 11988 directs agencies to prepare implementing procedures in
consultation with the Water Resources Council (WRC),36 FEMA, and the Council on
Environmental Quality (CEQ). As noted, the WRC issued the 1978 Guidelines, the
authoritative interpretation of Executive Order 11988.37 The 1978 Guidelines provided a
section-by-section analysis, defined key terms, and outlined an 8-step decision-making
process for carrying out the directives of Executive Order 11988.
B. Statutory Authority to Require FFRMS Under FEMA Grant Programs
FEMA has authority to require application of the FFRMS as a condition of
funding in its grant programs based on the grant programs’ authorizing statutes.
Congress granted FEMA the authority to provide Federal assistance through multiple

This is also referred to as the “100-year floodplain” or the “base floodplain.”
The WRC, established by statute (42 U.S.C. 1962a–1), is charged with maintaining a continuing study
and preparing an assessment biennially, or at such less frequent intervals as the Council may determine, of
the adequacy of supplies of water necessary to meet the water requirements in each water resource region
in the United States and the national interest therein; and maintaining a continuing study of the relation of
regional or river basin plans and programs to the requirements of larger regions of the Nation and of the
adequacy of administrative and statutory means for the coordination of the water and related land resources
policies and programs of the several Federal agencies. It is responsible for appraising the adequacy of
existing and proposed policies and programs to meet such requirements and making recommendations to
the President with respect to Federal policies and programs.
37 42 FR 6030, Feb. 10, 1978. A PDF copy of the 1978 Guidelines can be found at this link:
hud.gov/sites/documents/DOC_14216.PDF (last accessed Jan. 24, 2024).
35
grant programs under the Stafford Act,38 the NFIA,39 the Homeland Security Act of
2002,40 the Federal Fire Prevention and Control Act of 1974,41 the Earthquake Hazards
Reduction Act of 1977,42 and various other appropriations acts. Under each of these
authorities, FEMA may set grant eligibility criteria consistent with the respective
purposes of such programs and FEMA’s mission, including to protect Federal
investments from the risks of further damage.43
Congress enacted the Stafford Act44 to “provide an orderly and continuing means
of assistance” to State and local governments in carrying out their responsibilities to
alleviate the suffering and damage that result from disasters by, among other
responsibilities, “encouraging hazard mitigation measures to reduce losses from disasters,
including the development of land use and construction regulations” and “identifying the
climate and natural hazard resilience of vulnerable communities.”45 FEMA has general
authority under the Stafford Act to “prescribe such rules and regulations as may be
necessary and proper to carry out the provisions of [the Stafford Act], and may exercise,

42 U.S.C. 5121 et seq.
42 U.S.C. 4001 et seq.
40 6 U.S.C. 101 et seq; see also 6 U.S.C. 314(a)(12), which specifically charges the Administrator with
supervising various grant programs authorized under the HSA. Such grant programs have long been
governed by floodplain management regulations at 44 CFR part 9, see, e.g., 44 FR 76510 (Dec. 27, 1979),
45 FR 59520 (Sept. 9, 1980). See also, e.g., 2 CFR 200.300(a) (directing Federal awarding agencies to
manage and administer Federal awards in a manner so as to ensure that Federal funding is expended and
associated programs are implemented in full accordance with the U.S. Constitution, Federal Law, and
public policy requirements including, but not limited to, those protecting public welfare and the
environment; and requiring the Federal awarding agency to communicate to the non-Federal entity all
relevant public policy requirements, and incorporate them either directly or by reference in the terms and
conditions of the Federal award.).
41 15 U.S.C. 2229 and 2229a.
42 42 U.S.C. 7701 et seq.
43 See, e.g., 6 U.S.C. 609 (granting FEMA approval authority over grant funds for construction awards
under its Homeland Security Grant Program, State Homeland Security Grant Program, Urban Area Security
Initiative, Operation Stonegarden, Tribal Homeland Security Grant Program, and Nonprofit Security Grant
Program); 6 U.S.C. 1182(d)(1) (granting DHS the authority to determine the grant requirements for the
Intercity Bus Security Grant Program); 6 U.S.C. 1163(c)(1) (granting FEMA the authority to determine the
grant requirements for the Intercity Passenger Rail grant program); 46 U.S.C. 70101 (granting DHS
approval authority over grant funds for construction awards under the Port Security Grant Program); 6
U.S.C. 1135(c)(1) (granting DHS the authority to determine the grant requirements for the Transit Security
Grant Program); 33 U.S.C. 467f-2(c)(2)(A) (granting FEMA the authority to set the minimum eligibility
requirements for the Rehabilitation of High Hazard Dam Program).
44 42 U.S.C. 5121 et seq.
45 42 U.S.C. 5121(b)(5) and (7).
38
either directly or through such Federal agency as the President may designate, any power
or authority conferred to the President by [the Stafford Act].”46 The Stafford Act further
grants FEMA explicit authority to set the minimum standards for safe land use and
construction standards required in the repair or construction of private and public
facilities.47
Congress enacted the NFIA to authorize a flood insurance program which is
designed to “promote the public interest by providing appropriate protection against the
perils of flood losses and encouraging sound land use by minimizing exposure of
property to flood losses” and the objectives of which should be “integrally related to a
unified national program for flood plain management.”48 FEMA has general authority
under the NFIA to “issue such regulations as may be necessary” to carry out its
provisions.49 Section 404 of the NFIA grants FEMA the authority to provide flood
mitigation grant funding and requires the activities funded to be consistent with
floodplain management criteria developed by the Administrator.50
C. 44 CFR Part 9, “Floodplain Management and Protection of Wetlands”

42 U.S.C. 5164.
42 U.S.C. 5165a(a)(1)-(2).
48 42 U.S.C. 4001(c). As part of the floodplain management program under the NFIP, FEMA establishes
minimum floodplain management criteria, and communities that participate in the NFIP must adopt and
enforce floodplain management regulations that incorporate the minimum criteria. 44 CFR 59.2(b),
59.22(a)(3), 60.1(d). FEMA has determined that it is consistent with the purposes of the NFIA to allow
communities to adopt more comprehensive floodplain management regulations that exceed the minimum
requirements. 44 CFR 60.1(d). Similarly, in its implementation of Executive Order 11988, FEMA
prohibits taking any action taken unless it is consistent with the NFIP minimum criteria or any more
restrictive Federal, State or local floodplain management standards. 44 CFR 9.11(d)(6).
49 42 U.S.C. 4128(a).
50 42 U.S.C. 4104c and 4102. Please note this rulemaking does not alter the minimum floodplain
management criteria that communities adopt to participate in the NFIP. The NFIP is a program through
which property owners in participating communities can purchase Federal flood insurance as a protection
against flood losses. 42 U.S.C. 4011(a). As a condition of eligibility, a community must adopt and enforce
floodplain management regulations that incorporate NFIP minimum floodplain management criteria
developed by the Administrator. 42 U.S.C. 4011(a) and (b); 42 U.S.C. 4102; 44 CFR 59.2(b), 59.22(a)(3),
60.1(d). Further information regarding FEMA’s minimum floodplain management standards for the NFIP
can be found at 44 CFR part 59 et seq. Because this rule only applies to actions subject to the FFRMS, this
rule does not change any FEMA standards applicable to community or individual participation in any
aspect of the NFIP. In general, changes to 44 CFR part 59 et seq would require a rulemaking to revise the
appropriate sections of the CFR.
46
Consistent with the NFIA, the Flood Disaster Protection Act, and NEPA, FEMA
promulgated regulations implementing Executive Order 11988 at 44 CFR part 9,
“Floodplain Management and Protection of Wetlands.”51 Part 9 closely follows the 1978
Guidelines in setting forth FEMA's policy and procedures for floodplain management
relating to disaster planning, response and recovery, and hazard mitigation. Part 9
generally applies to FEMA actions, including FEMA direct actions and FEMA's disaster
and non-disaster assistance programs.52 Pursuant to section 8 of Executive Order 11988,
part 9 does not apply to assistance provided for emergency work essential to save lives
and protect property and public health and safety, performed pursuant to sections 403 and
502 of the Stafford Act, as amended (42 U.S.C. 5170b and 5192). In addition, FEMA
applies part 9 programmatically to the National Flood Insurance Program (NFIP).53
FEMA does not apply part 9 to site-specific actions under the NFIP because the
establishment of programmatic criteria, rather than the application of the programmatic
criteria to individual situations, is the action with the potential to influence or affect
floodplains.54
Part 9 outlines FEMA’s 8-step decision-making process for conducting floodplain
management reviews before performing certain actions, including approval of grant
funding. The 8-step decision making process is:
(1) Determine whether the proposed action is located in a wetland or floodplain
and its potential to affect or be affected by a wetland or floodplain;

FEMA published an interim final rule on December 27, 1979 (44 FR 76510) and a final rule on
September 9, 1980 (45 FR 59520). Note this part also implements a related Executive Order 11990,
“Protection of Wetlands.” See 42 FR 26961, May 25, 1977.
52 44 CFR 9.4 defines the actions subject to the requirements, which include federal lands and facilities,
providing federal funds for construction and improvements, and conducting activities or programs that
affect land use.
53 A complete list of FEMA programs to which Part 9 does not apply appears at 44 CFR 9.5. The
exemption for actions under the NFIP is located at 44 CFR 9.5(f).
54 For example, Part 9 requires FEMA to apply the 8-step process to a programmatic determination of
categories of structures to be insured but does not require FEMA to apply an 8-step review to a
determination of whether to insure each individual structure. See 44 CFR 9.5(g).
(2) Notify the public of the intent to carry out the proposed action within or
affecting a wetland or floodplain, and involve the affected and interested public in the
decision-making process;
(3) Identify and evaluate practicable alternatives to locating the proposed action in
a floodplain or wetland, including alternative sites, actions, and the “no action” option;
(4) Identify the potential direct and indirect impacts associated with the
occupancy or modification of floodplains and wetlands and the potential direct and
indirect support of floodplain and wetland development that could result from the
proposed action;
(5) Minimize the proposed action’s potential adverse impacts and support to or
within the floodplains and wetlands identified under Step 4;
(6) Re-evaluate the proposed action and other practicable alternatives identified in
step 3 based on new information gained in steps 4 and 5;
(7) Inform the public of any final decision that the floodplain or wetland is the
only practicable alternative; and
(8) Implement the action.
There are certain exclusions from all or some of the 8-steps for certain categories of
actions being funded by FEMA.55
D. Executive Order 13690, the Federal Flood Risk Management Standard
and Subsequent Amendments to Executive Order 11988, and Revisions to the 1978
Guidelines

On January 30, 2015, the President issued Executive Order 13690, “Establishing a
Federal Flood Risk Management Standard (FFRMS) and a Process for Further Soliciting
and Considering Stakeholder Input.”56 Executive Order 13690 amended Executive Order
44 CFR 9.5(c), (d), (e), and (g).
80 FR 6425, Feb. 4, 2015. Section 5(c) of Executive Order 13690 specifically states that the order “is not
intended to, and does not, create any right or benefit, substantive or procedural, enforceable at law or in
equity by any party against the United States, its departments, agencies, or entities, its officers, employees,
or agents, or any other person.”
55
11988 and established the FFRMS. It required FEMA to publish an updated version of
the 1978 Guidelines (revised to incorporate the changes required by Executive Order
13690 and the FFRMS) in the Federal Register for notice and comment. Executive
Order 13690 also required the WRC to issue final Guidelines to provide guidance to
agencies on the implementation of Executive Order 11988, as amended, consistent with
the FFRMS. FEMA, acting on behalf of the Mitigation Framework Leadership Group
(MitFLG), published a Federal Register notice for a 60-day notice and comment period
seeking comments on a draft of the Revised Guidelines on February 5, 2015.57 FEMA
received over 556 separate submissions.58 The final Revised Guidelines were issued on
October 8, 2015.59
The Revised Guidelines contain an updated version of the FFRMS (located at
Appendix G of the Revised Guidelines), reiterate key concepts from the 1978 Guidelines,
and explain the new concepts resulting from the FFRMS. In response to public
comments, the MitFLG clarified the distinction between “actions” and “Federally funded
projects.” On August 22, 2016, FEMA published an NPRM entitled “Updates to
Floodplain Management and Protection of Wetlands Regulations To Implement
Executive Order 13690 and the Federal Flood Risk Management Standard” in the
Federal Register (81 FR 57402). The rulemaking would have revised FEMA's
regulations on “Floodplain Management and Protection of Wetlands” to implement
Executive Order 13690. FEMA also proposed a supplementary policy entitled “FEMA
Policy: Guidance for Implementing the Federal Flood Risk Management Standard
(FFRMS)” (FEMA Policy 078–3), which would have further clarified how FEMA would

80 FR 6530, Feb. 5, 2015.
FEMA received approximately 556 separate submissions, which raised over 2700 separate issues and
positions. Written comments were received at a series of eight in-person listening sessions across the
country (135 submissions); verbal comments were shared during the public comment periods of these same
listening sessions (74 commenters); comments were submitted through the FFRMS email address (20
submissions); comments were submitted through regulations.gov (326 submissions); and comments were
submitted as part of a petition of support (1 submission).
59 80 FR 64008, Oct. 22, 2015.
57
apply the FFRMS. The notice of availability and request for comments for the
supplementary policy also published in the August 22, 2016, Federal Register at 81 FR
56558. On September 20, 2016, FEMA published a notice of data availability regarding
a draft report, the 2016 Evaluation of the Benefits of Freeboard for Public and
Nonresidential Buildings in Coastal Areas, which had been added to the docket for the
proposed rule (81 FR 64403).
On August 15, 2017, the President issued Executive Order 13807 (“Establishing
Discipline and Accountability in the Environmental Review and Permitting Process for
Infrastructure Projects”) which revoked Executive Order 13690. See 82 FR 40463, Aug.
24, 2017. Accordingly, on March 6, 2018, in light of the revocation of Executive Order
13690, FEMA withdrew the August 22, 2016, NPRM and supplementary policy (83 FR
9473). On May 20, 2021, the President issued Executive Order 14030 (“Climate-Related
Financial Risk”)60 reinstating Executive Order 13690, thereby reestablishing the FFRMS.
Executive Order 14030 also states the Revised Guidelines issued in 2015 were never
revoked and remain in effect. As such, FEMA reviewed its prior NPRM and proposed
policy, and revised its approach to implementation based on lessons learned during and
since the 2016 rulemaking process. Specifically, FEMA first partially implemented the
FFRMS by policy with respect to covered projects in existing floodplains in its Public
Assistance and Hazard Mitigation Assistance programs.61 FEMA next proposed to fully
implement the FFRMS through the NPRM, which proposed updates to FEMA
regulations and a supplemental FFRMS policy.62
86 FR 27967, May 25, 2021. See also Executive Order 13990 (“Protecting Public Health and the
Environment and Restoring Science To Tackle the Climate Crisis”), 86 FR 7037, Jan. 25, 2021 (revoking
Executive Order 13807).
61 See FEMA Policy 104–22–003, “Partial Implementation of the Federal Flood Risk Management
Standard for Public Assistance (Interim),” June 3, 2022 found at https://www.fema.gov/sites/default/files/
documents/fema_fp-104-22-0003-partial-implemetnation-ffrms-pa-interim.pdf (last accessed Jan. 24, 2024)
and FEMA Policy 206–21–003–0001, “Partial Implementation of the Federal Flood Risk Management
Standard for Hazard Mitigation Assistance Program,” Dec. 7, 2022 found at https://www.fema.gov/sites/
default/files/documents/fema_policy-fp-206-21-003-0001-implementation-ffrms-hma-program_122022.pdf
(last accessed Jan. 24, 2024).
62 88 FR 67870, Oct. 2, 2023.
E. Substantive Components of the FFRMS
The FFRMS is a flexible framework to increase resilience against flooding and
help preserve the natural values of floodplains and wetlands.63 Incorporating the FFRMS
will expand the floodplain and require projects to increase their resilience to flooding.
Applying the FFRMS will help ensure that Federally funded projects will last as long as
intended. In addition, the FFRMS and Revised Guidelines require the evaluation of
natural features and nature-based approaches, where possible, in the analysis of
practicable alternatives of the decision-making process for all Federal actions. Naturebased approaches can also help minimize an action’s impacts to the floodplain and assist
in restoring the natural and beneficial functions of floodplains.
Under the FFRMS, a Federal agency may establish the floodplain for actions
subject to the FFRMS using any of the following approaches:
• Approach 1: Climate-Informed Science Approach (CISA): Utilizing the bestavailable, actionable hydrologic and hydraulic data and methods that integrate current
and future changes in flooding based on climate science;
• Approach 2: Freeboard Value Approach (FVA): Freeboard (1 percent annual
chance flood elevation + X, where X is 3 feet for critical actions and 2 feet for other
actions);
• Approach 3: 0.2-percent-annual-chance Flood Approach (0.2PFA): 0.2 percent
annual chance flood (also known as the 500-year flood); or

Although the FFRMS describes various approaches for determining the higher vertical flood elevation
and corresponding horizontal floodplain for Federally funded projects, it is not meant to be an “elevation”
standard. The FFRMS is a resilience standard. The vertical flood elevation and corresponding horizontal
floodplain determined using the approaches in the FFRMS establish the level to which a structure or
facility must be resilient to. This may include using structural or non-structural methods to reduce or
prevent damage; elevating a structure; or, where appropriate, designing it to adapt to, withstand, and rapidly
recover from a flood event. See “Guidelines for Implementing Executive Order 11988, Floodplain
Management, and Executive Order 13690, “Establishing a Federal Flood Risk Management Standard and a
Process for Further Soliciting and Considering Stakeholder Input” (Oct. 8, 2015), found at
https://www.fema.gov/sites/default/files/documents/fema_implementing-guidelines-EO11988-13690_
10082015.pdf (last accessed Jan. 24, 2024).
• Approach 4: the elevation and flood hazard area that result from using any other
method identified in an update to the FFRMS.64
The four approaches are described in further detail below.
FFRMS Approach 1: CISA
The Revised Guidelines state that the CISA is the preferred approach, and that
Federal agencies should use this approach when data to support such an analysis are
available and actionable. The CISA uses existing, sound science and engineering
methods (e.g., hydrologic and hydraulic analysis and methods used to establish current
flood elevations and floodplain maps), supplemented with best available and actionable
climate science and consideration of impacts from projected land cover/land use changes,
long-term erosion, and other processes that may alter flood hazards over the lifecycle of
the Federal investment.65 For areas vulnerable to coastal flood hazards, the CISA
includes consideration of the regional sea-level rise variability during the lifecycle of the
Federal action. This includes use of global mean sea-level-rise scenarios adjusted to the
local relative sea-level conditions and would be combined with surge, tide, and wave data
using state-of-the-art science in a manner appropriate to policies, practices, criticality,
and consequences. For areas vulnerable to riverine flood hazards (i.e., flood hazards
stemming from a river source), the CISA would account for changes in riverine
conditions due to current and future changes in climate and other factors such as land use,
by applying state-of-the-art science in a manner appropriate to policies, practices,
criticality, and consequences (risk). The CISA for critical actions would utilize the same
methodology as used for non-critical actions that are subject to Executive Order 11988,
as amended, but with an emphasis on criticality as one of the factors for agencies to
consider when conducting the analysis.

64
See Executive Order 13690 Section 2(i), 80 FR 6425, 6426 (Feb. 4, 2015).
See Revised Guidelines, pgs. 36–37.

FFRMS Approach 2: FVA
The FFRMS and Revised Guidelines define freeboard values as an additional 2
feet added to the 1 percent annual chance flood elevation, or, for critical actions, an
additional 3 feet added to the 1 percent annual chance flood elevation. In other words, the
floodplain established by the FVA is the equivalent of the 1 percent annual chance
floodplain, plus either 2 or 3 feet of vertical elevation, as applicable based on criticality,
and a corresponding increase in the horizontal extent of the floodplain. The increased
horizontal extent will not be the same in every case. When the same vertical increase is
applied in multiple actions subject to the FFRMS in different areas, the amount of the
increase in the horizontal extent of the respective floodplains will depend upon the
topography of the area surrounding the proposed location of the action.
FFRMS Approach 3: 0.2PFA
Agencies may use available 0.2 percent annual chance (or “500-year”) flood data
as the basis of the FFRMS elevation and corresponding floodplain extent. Under this
approach, the same floodplain and elevation is used for critical and non-critical actions.
The FFRMS and Revised Guidelines note that often the 0.2 percent annual chance flood
elevation data provided by FEMA in coastal areas only considers storm-surge hazards;
this data does not include local wave action or storm-induced erosion that are considered
in the computation of flood elevations. The FFRMS and Revised Guidelines encourage
agencies to obtain or develop the necessary data, including wave heights, to ensure that
any 0.2 percent annual chance flood data applied will achieve an appropriate level of
flood resilience or use the FVA approach instead for the proposed investment.
FFRMS Approach 4: Update to FFRMS
The MitFLG, in consultation with the Federal Interagency Floodplain
Management Task Force (FIFM-TF), must reassess the FFRMS annually after seeking
stakeholder input and provide recommendations to the WRC to update the FFRMS, if

warranted. The WRC must issue an update to the FFRMS at least every 5 years. The
updates ensure the floodplain determination process for actions subject to the FFRMS
reflects current methodologies.
Further Guidance on Application of the FFRMS Approaches to Establishing
the Floodplain
The FFRMS and Revised Guidelines state that when an agency does not use the
CISA in a coastal flood hazard area and where the FEMA 0.2 percent annual chance
flood elevation does not include wave height, or a wave height has not been determined,
the 0.2 percent annual chance elevation should not be used, and the FVA should be used
instead. The FFRMS and Revised Guidelines note that where the 0.2 percent annual
chance flood elevation does not consider wave action, the result will likely either be
lower than the current base flood elevation or the base flood elevation plus applicable
freeboard. Where wave action has been incorporated into the 0.2 percent annual chance
elevation, the 0.2 percent annual chance elevation can be used.
The Revised Guidelines state that for riverine flood hazard areas, agencies may
select either the FVA or 0.2PFA (or a combination of approaches, as appropriate) when
actionable science is not available, and an agency opts not to follow the CISA. The
agency is not required to use the higher of the elevations but may opt to do so. The
elevation standards of the FFRMS are not intended to supplant applicable State, Tribal,
territorial, or local floodplain protection standards. If such standards exceed the FFRMS,
an agency should apply those standards if the agency determines the application of the
standards is reasonable considering the goals of Executive Order 11988, as amended.66

See Revised Guidelines at 53. The Revised Guidelines suggest agencies should apply a reasonableness
standard to higher SLTT floodplain management standards. FEMA has historically deferred to higher local
codes and standards from an SLTT government in 44 CFR 9.11(d)(6) and will continue the practice
through this rulemaking, rather than applying a case-by-case reasonableness analysis and believes this is
appropriate because of program-specific controls that ensure higher standards are reasonable. Specifically,
in the PA program, if an SLTT government has adopted a code or standard that exceeds minimum
standards set by FEMA, regulations at 44 CFR 206.226(d) require the code to be in place and adopted pre66

F. Summary of the 2023 Proposed Rule and Proposed FFRMS Policy
The proposed rule set forth how FEMA would implement Executive Order 11988,
as amended, the FFRMS, and the Revised Guidelines as part of FEMA’s floodplain
management regulations, while also updating FEMA’s 8-step process. The proposed rule
included the following provisions, which remain unchanged in this final rule except as
indicated in section I.C of this preamble.
Severability
The NPRM proposed to amend § 9.3 to remove the authorities section as
redundant and to replace it with a severability section. FEMA did not receive any
comments on its proposal to include a severability provision. The proposed severability
provision is therefore incorporated in § 9.3 of this final rule without change. FEMA
believes that its authority to require an 8-step decision making process and incorporate
the FFRMS into it is well-supported in law and policy and should be upheld in any legal
challenge. However, in the event that any portion of the proposed rule is declared invalid,
FEMA intends that the various provisions of 44 CFR part 9 be severable. The provisions
are not so interconnected that the rule’s efficacy depends on every one of them remaining
in place—implementation of the different provisions is sufficiently distinct that FEMA’s
aim of updating the 8-step process and incorporating the FFRMS would still be furthered
by maintaining the other provisions. For example, if a court were to find unlawful
FEMA’s inclusion of the FFRMS approaches in § 9.7(c), FEMA intends to retain the
inclusion of consideration of nature-based approaches in the appropriate steps of the 8step decision making process and all other amendments to the 44 CFR part 9 not affected
by the court decision. Similarly, if a court were to find unlawful FEMA’s chosen

disaster which guards against an SLTT government's adoption of unreasonably high codes and standards.
With respect to mitigation projects, they are all required to be cost-effective as a minimum criteria of
eligibility. See 42 U.S.C. 5170c(a); 42 U.S.C. 5133(b); 42 U.S.C. 4104c(c)(2)(A). This project-by-project
cost-effectiveness analysis should guard against any SLTT standards that are unreasonably high.

approach in the proposed policy, FEMA intends to retain the regulatory changes
implementing the FFRMS. Those provisions that are unaffected by a legal ruling can be
implemented by an agency without requiring a new round of rulemaking simply to
promulgate provisions that are not subject to a court ruling.
Conforming Changes to Definitions
The NPRM proposed to amend § 9.4 to reflect the new definitions required by the
FFRMS and Revised Guidelines, while also updating other definitions to clarify terms
and leverage common usage that has evolved since the regulation was issued. The most
significant definitional change proposed by the FFRMS was the change to the meaning of
“floodplain.” To harmonize this change in § 9.4, the NPRM proposed to revise a few
existing definitions and removed other definitions. In addition, the NPRM proposed to
revise the remaining sections of 44 CFR part 9 that refer generally to the floodplain or
refer specifically to the base (or 100-year) floodplain or the 0.2 percent annual chance (or
500-year) floodplain, for clarity.
Distinction Between “Actions Subject to the FFRMS” and Other FEMA
Actions
Step 1 in the 8-step process is to determine whether the proposed action is in the
floodplain. Because Executive Order 11988, as amended, and the FFRMS revised the
definition of the “floodplain” that agencies use for “Federally funded projects,” the
NPRM proposed to revise the first step to require FEMA to determine whether the
proposed action falls within the definition of an “action subject to the FFRMS.” Under
the proposed rule, if FEMA determined that the action is a Federally funded project, i.e.,
if FEMA determined that the action uses FEMA funds for new construction, substantial
improvement, or to address substantial damage to a structure or facility, the FFRMS
floodplain would apply. Alternatively, if FEMA determined that the action did not fall
under the definition of an action subject to the FFRMS, the existing floodplain analysis

would remain in place. For example, if the action was considered non-critical, the 1
percent annual chance floodplain applied, and if the action was considered critical, the
0.2 percent annual chance floodplain applied.
Emphasis on Nature-Based Approaches
Executive Order 11988, as amended, directs agencies to use, where possible,
natural systems, ecosystem processes, and nature-based approaches in the development of
alternatives for Federal actions in the floodplain. The NPRM proposed to incorporate
this requirement in § 9.9, which addresses the requirement to consider practicable
alternatives when determining whether to locate an action in the floodplain. This
proposed requirement would apply regardless of whether the proposed action is a FEMA
Federally funded project. To further explain this proposed requirement, the NPRM
proposed to add a definition of “nature-based approaches,” meaning features designed to
mimic natural processes and provide specific services such as reducing flood risk and/or
improving water quality. The NPRM also proposed to add a definition of “natural
features,” meaning the characteristics of a particular environment that are created by
physical, geological, biological, and chemical processes and exist in dynamic
equilibrium.
Consistent with the Revised Guidelines, FEMA proposed to update the factors
integrated into its impact analysis and minimization measures (Step 4 and Step 5) to
identify those opportunities for beneficial floodplain and wetland values, to include
natural values related factors that prioritize water resource values, living resource values,
and agricultural, aquacultural, and forestry resource values. Applying natural features or
nature-based approaches as alternatives furthers the goals in 44 CFR part 9 and allows for
FEMA to further encourage those actions that increase the natural and beneficial
functions of the floodplain.

The NPRM proposed to update Step 1 of the 8-step process to describe the
floodplain determination for those actions that are subject to the FFRMS, and Step 3 to
require the consideration of natural features and nature-based approaches in the
identification and evaluation of practicable alternatives. The NPRM also proposed to
incorporate certain additional exclusions from all or some of the 8-steps for certain
categories of actions being funded by FEMA. Specifically, FEMA proposed to remove
private bridges and debris clearance and removal under section 502 of the Stafford Act
from the 8-step process, while also updating the monetary thresholds for actions under
sections 406 and 407 of the Stafford Act.
Proposed FFRMS Policy
The proposed FFRMS policy outlined the FFRMS approach FEMA would use for
actions subject to the FFRMS. FEMA’s proposed FFRMS policy would be applicable to
actions in the FFRMS floodplain where FEMA funds were used for new construction,
substantial improvement, or to address substantial damage. Specifically, the proposed
policy would require FEMA to determine the FFRMS floodplain according to the
Climate-Informed Science Approach (CISA) for all locations where the best-available,
actionable hydrologic and hydraulic data methods that integrate current and future
changes in flooding based on climate science exist. When the CISA data was not
available and not actionable for a critical action, the proposed FFRMS policy would
require FEMA to determine the FFRMS floodplain as the area that would be inundated
by the higher of either the 0.2 percent annual chance flood or the 3 feet of freeboard
above the base flood elevation (BFE) for that location (the Freeboard Value Approach or
FVA). When the CISA is not available and actionable for a non-critical action, the
proposed FFRMS policy would require FEMA to determine the FFRMS floodplain as the
area that would be inundated by the lower of either the 0.2 percent annual chance flood or
the 2 feet of freeboard above the BFE for that location (the FVA). In coastal areas where

the CISA data is not available and actionable, the proposed FFRMS policy would require
the FVA be used if the available 0.2 percent annual chance flood elevation does not
account for wave action.
FEMA noted in the policy and the NPRM that it was coordinating across the
Federal government to develop tools, such as the FFRMS Job Aid published in the public
docket associated with this rulemaking,67 to assist agencies and stakeholders in
determining the FFRMS floodplain and would rely on those tools as the best available
information in making its determinations. The FFRMS Job Aid presents a general
methodology to identify the FFRMS floodplain for each of the three approaches that
relies on information from available FEMA FIRMs, U.S. Geological Survey (USGS)
ground elevations, and the 2022 Sea Level Rise Technical Report sea level rise
estimates.68
FEMA’s proposed FFRMS policy also required that nature-based solutions and
natural features be considered and implemented where possible to all actions that are
subject to Step 3 of the 8-step decision-making process and not just those actions subject
to the FFRMS. Nature-based solutions and natural features must be considered as an
alternative action in Step 3. Where it is not possible to use natural features and naturebased solutions as an alternative on their own, they would be considered in conjunction
with the proposed action as a minimization measure in Step 5.
Updated FFRMS Resources
The FFRMS approaches include the CISA, an “approach that uses the bestavailable, actionable hydrologic and hydraulic data and methods that integrate current
and future changes in flooding based on climate science.” The Revised Guidelines and

See NPRM, 88 FR 67870, 67900 and FEMA Proposed Policy: Federal Flood Risk Management Standard
at pg. 5 (posted to the public docket at https://www.regulations.gov/document/FEMA-2023-0026-0005).
See also https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-jobaid.pdf (last accessed Jan. 24, 2024) and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0004.
68 Id at Section 1.6.
Appendix H help to define the “best available and actionable science,” stating that bestavailable generally refers to science, data or information that is:
•

transparent – clearly outlines assumptions, applications, and limitations;

•

technically credible – transparent subject matter or more formal external

peer review, as appropriate, of processes and source data;
•

usable – relevance and accessibility of the information to its intended

users; and
•

legitimate – perceived by stakeholders to conform to recognized

principles, rules, or standards.
Legitimacy might be achieved by existing government planning processes with
the opportunity for public comment and engagement.69
Actionable science includes theories, data, analyses, models, projections,
scenarios and tools that are:
•

relevant to the decision under consideration;

•

reliable in terms of its scientific or engineering basis and appropriate level

of peer review;
•

understandable to those making the decision;

•

supportive of decisions across wide spatial, temporal, and organizational

ranges, including those of time-sensitive operational and capital investment decisionmaking;
•

co-produced by scientists, practitioners, and decisionmakers, and meet the

needs of and are readily accessible by stakeholders.70
Appendix H further defines a general framework for the CISA by identifying
types of changes that should be considered and discussing the importance of considering

See Revised Guidelines, Appendix H: Climate-Informed Science Approach and Resources, pg.5
See Revised Guidelines, pg. 51 and Appendix H: Climate-Informed Science Approach and Resources,
pg. 5.
69
operational life; provides an approach for incorporating uncertainty into the CISA; and
discusses a range of data sources. The document does not prescribe or direct agencies to
use specific resources or methods.
In 2023, the Science Subgroup convened by the Flood Resilience Interagency
Working Group of the National Climate Task Force published the FFRMS CISA State of
the Science Report (“FFRMS CISA State of the Science Report”).71 This report provides
a review and update of the best-available, actionable science that can support application
of the CISA, reflecting science and technology advancements made since 2015. Like
Appendix H from the Revised Guidelines, the FFRMS CISA State of the Science Report
provides non-prescriptive, scientific, and engineering guidance for use by Federal
agencies, their non-Federal partners, and other entities in determining future flood
hazards under the FFRMS’ CISA option. The FFRMS CISA State of the Science Report
refines the initial framework from Appendix H to define two specific workflows for
applying the CISA,72 while acknowledging that technical competencies and capabilities
needed to fully apply the CISA vary and may exceed those available in most Federal
agencies and many non-Federal users.73 The Report states that workflow implementation
can be scaled to meet resource level and project requirements.74
The FFRMS CISA State of the Science Report specifically identifies the latest sea
level rise projections from the National Climate Assessment as actionable.75 The FFRMS
State of the Science Report states each agency should factor projected regional/local sea
level change into Federal investment decisions located as far inland as the extent of
estimated tidal influence, now and in the future, using the most appropriate methods for

Available at https://www.whitehouse.gov/wp-content/uploads/2023/03/Federal-Flood-RiskManagement-Standard-Climate-Informed-Science-Approach-CISA-State-of-the-ScienceReport.pdf?trk=public_post_comment-text (last accessed Mar. 12, 2024).
72 FFRMS CISA State of the Science Report, Coastal workflow starting on pg. 11 and Riverine workflow
starting on pg. 38.
73 Id. at pg. 5.
74 See id.
75 Id. at pgs. 21-22.
the scale and consequence of the decision.76 The FFRMS CISA State of the Science
Report also suggests that along low-lying coastal shorelines on the Atlantic and Gulf
Coasts not subject to runup or overtopping, the appropriate sea level rise estimates can be
used similar to freeboard.77
This is the basis of the interagency implementation and supporting tools such as
the FFRMS Job Aid.78 The FFRMS Job Aid is a resource to help Federal agencies and
their non-Federal partners (including potential Federal financial aid recipients) conduct a
screening to determine if a proposed Federally funded action will be located in an
FFRMS floodplain, based on the CISA, FVA, or 0.2PFA. While Appendix H of the
Revised Guidelines and the FFRMS CISA State of the Science Report provide more
general approaches that could be used to apply the CISA with sufficient time, money and
expertise,79 FEMA does not believe the data and science for these broader approaches are
sufficiently available and actionable for FEMA to implement at scale. As explained
below, FEMA prioritized the type and criticality of the action involved, the availability
and actionability of the data, and equity concerns, and determined that applying the CISA
through these broader, more complex approaches is not appropriate at this time given the
agency’s role in helping people recover from disasters in an expedited manner. FEMA

Id. at pg. 23.
The FFRMS CISA State of the Science Report identifies the latest interagency Federal guidance for
regionally-based SLR projections as available and actionable by recommending that all agencies should use
these data as part of a CISA approach. At pg. 22, the Report states “Federal agencies should apply this
latest interagency Federal guidance for regionally-based SLR projections. Scenarios and time horizons
should use a consistent national approach based on risk tolerance and criticality.” However, the Report
also warns against using the simplified approach with SLR in areas subject to runup and overtopping on pg.
28 “Notably, areas subject to runup and overtopping can be very sensitive to changes in water level
(including due to SLR) and the variability of the slope—so within a CISA implementation, these areas
should be treated with appropriate analysis and not simple linear addition of flooding components.” Based
on these guidelines, the FFRMS Job Aid establishes the use of simplified CISA in specific areas, namely in
some coastal environments, specifically along low-lying coastal shorelines on the Atlantic and Gulf Coasts.
See FFRMS Job Aid, pg. 10.
78 Available at https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determinationjob-aid.pdf (last accessed Mar. 12, 2024).
79 FFRMS CISA State of the Science Report, pg.5, Coastal workflow starting on pg. 11, and Riverine
workflow starting on pg. 38.
76
instead decided to use consensus interagency approaches that are readily accessible to
implement the CISA.
To help FEMA implement the FFRMS, the agency will leverage interagency
tools. Specifically, FEMA will follow the methodology laid out in the FFRMS Job Aid
to determine whether a site for a proposed action subject to the FFRMS is located within
an FFRMS floodplain and if so, the FFRMS flood elevation for that site. FEMA will
follow the CISA, FVA, or 0.2PFA Job Aid methodologies according to FEMA’s FFRMS
policy. Consistent with the FFRMS Job Aid, FEMA finds that the CISA is currently
available and actionable for low-lying coastal shorelines on the Atlantic and Gulf
Coasts.80 If a site poses other complexities, such as steep bluffs or shorelines armored by
large seawalls or similar flood-control structures, the CISA is not available and
actionable81 and FEMA will instead use the FVA or 0.2PFA, per the agency’s policy.
For the CISA, FVA and 0.2PFA, FEMA will follow the processes outlined in 44 CFR 9.7
and in FEMA Policy 104-008-2: Guidance on the Use of Available Flood Hazard
Information.82 For example, if a preliminary FIRM has more restrictive flood hazard data
than an effective FIRM, FEMA will use the preliminary FIRM to identify the appropriate
flood elevation.83
Consistent with the FFRMS Job Aid, to determine whether a proposed site is
located within the FFRMS floodplain under the CISA and FVA approaches, FEMA will
compare the ground elevation at the site (using the U.S. Geological Survey National
Map) with the FFRMS flood elevation.84 To identify the FFRMS flood elevation under
the CISA and FVA, FEMA will identify the BFE at the site or the BFE at the nearest
mapped floodplain if the site is outside of the 1% annual chance floodplain. Any relevant

FFRMS Job Aid, pg. 10.
Id.
82 Available at https://www.fema.gov/sites/default/files/202004/Available_Flood_Hazard_Information_Policy_104-008-2.pdf (last accessed Mar. 12, 2024).
83 See FFRMS Policy, pg. 5.
84 FFRMS Job Aid, pgs. 8-9.
80
characteristics of the action or site will be noted at this stage (e.g., service life, criticality,
and flood characteristics).85 For the CISA, FEMA will determine the FFRMS flood
elevation by using the NOAA Sea Level Rise Viewer.86 FEMA will use the service life
of the action to select the scenario year.87 For non-critical actions, FEMA will use the
intermediate scenario, and for critical actions, FEMA will use the intermediate high
scenario.88 FEMA will then add the appropriate amount of sea level rise to the BFE to
reach the FFRMS CISA flood elevation. If the site elevation is less than the CISA flood
elevation, then the site is in the FFRMS CISA floodplain. For the FVA, 2 feet will be
added to the BFE for non-critical actions or 3 feet for critical actions to determine the
FFRMS FVA flood elevation.89 If the site elevation is less than the FVA flood elevation,
then the site is in the FFRMS FVA floodplain.90 For the 0.2PFA, FEMA will compare
the location of the site with the horizontal extent of the 0.2 percent annual chance
floodplain using the FEMA Map Service Center or National Flood Hazard Layer.91 If the
site is within the floodplain, then it is within the FFRMS 0.2PFA floodplain.92
FEMA published these additional resources in the public docket with this
rulemaking93 to further assist the public in understanding the FFRMS and the approaches
utilized, including the availability and actionability of the CISA data and how FEMA
would implement the FFRMS through application of the FFRMS Job Aid methodology.
FEMA will continue to collaborate across the Federal government to develop tools to
facilitate the implementation of CISA and the FFRMS. The IWG recently released for
comment a beta version of the Federal Flood Standard Support Tool (FFSST), a novel,

FFRMS Job Aid, pgs. 8-9 and pgs.13-15.
Id., pgs. 20-23.
87 Id.
88 FFRMS Job Aid, pg. 21.
89 FFRMS Job Aid, pg. 8.
90 Id., pgs. 8-9
91Id., pgs. 30-31.
92 Id.
93 See https://www.regulations.gov/document/FEMA-2023-0026-0007 and
https://www.regulations.gov/document/FEMA-2023-0026-0004.
85
interactive, map-based tool that incorporates new data to help users identify if a Federally
funded project is in the FFRMS floodplain.94
G. Summary of FEMA’s Final Rule and Updated Policy
This final rule implements Executive Order 11988, as amended, the FFRMS, and
the Revised Guidelines, while also updating FEMA's 8-step process. Consistent with the
changes proposed in the NPRM, FEMA is incorporating a severability clause into part 9;
updating definitions to implement the FFRMS and reflect current policy and practice;
providing the applicable effective date for the changes made in the final rule and further
clarifying the rule’s scope; updating how FEMA determines whether an action is in a
floodplain, consistent with the FFRMS approaches when the action is subject to the
FFRMS; and adding an emphasis on nature-based approaches in the 8-step process
consistent with Executive Order 11988, as amended.
In this final rule, FEMA incorporates edits to reflect commenter feedback.
Specifically, in § 9.7(c)(3), FEMA is adding agencies from Federal and Indian Tribal
governments as potential sources of information in making the floodplain determination.
These changes better ensure that FEMA will effectively consider relevant and appropriate
data in making the floodplain determination under part 9. FEMA is also making
clarifying edits in § 9.5(a)(3) to clarify that copies of the legacy regulations will be
available on the agency’s website and to § 9.7(c)(3) to clarify that FEMA may consider
information from the entities listed. FEMA is also making minor technical edits in §
9.7(c)(1)(i)(C) and § 9.11(d)(3)(ii).
FFRMS Policy
FEMA’s FFRMS policy is also being finalized with the publication of this rule
and will be effective with the rule’s implementation. The FFRMS policy provides
guidance on how FEMA will implement the FFRMS across FEMA’s programs and
89 FR 25674 (Apr. 11, 2024).

further incorporate nature-based solutions into the 8-step process. FEMA is making
minor clarifying edits to the FFRMS policy consistent with commenters’ suggestions by
further clarifying the use of the 0.2PFA in coastal areas and making other technical edits
to the document for readability. FEMA is also clarifying in the FFRMS policy that the
agency will leverage the FFRMS Job Aid when implementing the FFRMS.
III. Discussion of Public Comments and FEMA’s Responses
A. Summary of Public Comments
The NPRM public comment period closed on December 1, 2023, and FEMA
received 47 germane comments.95 Commenters included non-profit organizations;
individuals; local governments; State governments and State government organizations;
and for-profit entities. The majority of comments were supportive of FEMA’s rule and
policy approach to implementing the FFRMS and other updates to part 9. Commenters
focused on the regulatory impact analysis (RIA) accompanying the rule; the CISA and
the data FEMA would use to determine each of the FFRMS approaches; FEMA’s
implementation of the FFRMS; and the 8-step process detailed in part 9. FEMA
describes the specific revisions in the final rule and addresses commenters’ specific
concerns below.
B. Comments in Support of the Rule
The majority of commenters were generally supportive of the rule and
accompanying FFRMS policy.96 Commenters noted appreciation of FEMA’s rulemaking
efforts to enhance the resilience and sustainability of communities and ecosystems that
are vulnerable to flooding. These commenters stated the FFRMS was a critical policy

One commenter provided a duplicate comment posted to both the rulemaking and FFRMS policy
comments.
96 22 commenters expressed direct support for the rule while 19 other commenters expressed only specific
recommendations to improve the rule.
tool to reduce risks and promote sound floodplain management and wetlands protection
practices, as well as fiscal responsibility.
Commenters were supportive of the agency’s use of the FFRMS approaches in the
rulemaking and accompanying FFRMS policy document. A commenter noted the
incorporation of the CISA, FVA, and 0.2PFA reflected FEMA's commitment to using
diverse and adaptive strategies based on the best-available scientific knowledge. Another
commenter supported the floodplain definition revisions, stating that an expanded
floodplain definition would ensure that more projects were built with resilience in mind
when compared to current projects. A commenter stated FEMA’s preferred CISA
approach would result in Federally funded projects that were more resilient to current and
future flooding and ensured a wiser use of taxpayer dollars. The commenter stated
stronger standards were feasible to implement, as many jurisdictions already have
existing stronger building and land-use standards. Commenters also indicated support for
FEMA’s emphasis on using natural systems, ecosystem processes, and nature-based
approaches.
Timing
Comment: Some commenters supporting the rule requested FEMA quickly
finalize and implement the final rule. While requesting FEMA work quickly to finalize
and implement the rule, one commenter noted that the partial implementation policies in
place did not fully implement FFRMS as they did not extend the horizontal floodplain.
This commenter requested FEMA also integrate FFRMS into the minimum floodplain
management standards for the NFIP. The commenter also stated FEMA should ensure
FFRMS was sufficiently staffed and should develop a comprehensive plan to track
enforcement and any concerns such as environmental justice to ensure effective
implementation of the rule.

FEMA Response: FEMA agrees with the commenters on the importance of
finalizing and implementing the rule and FFRMS policy. FEMA is issuing this final rule
with an effective date of September 9, 2024. As explained in § 9.5(a)(3), the FFRMS
applies only to new actions for which assistance is made available pursuant to
declarations under the Stafford Act that are commenced on or after the effective date of
the final rule, and new actions for which assistance is made available pursuant to notices
of funding opportunity that publish on or after the effective date of the final rule.97
FEMA declines to accommodate the commenter’s request to integrate the FFRMS
into the minimum floodplain management standards for the NFIP because it is beyond
the scope of this rulemaking. The NFIP is a program through which property owners in
participating communities can purchase Federal flood insurance as a protection against
flood losses.98 As a condition of eligibility, a community must adopt and enforce
floodplain management regulations that meet or exceed the NFIP minimum floodplain
management criteria developed by the Administrator.99 Further information regarding
FEMA’s minimum floodplain management standards for the NFIP can be found at 44
CFR part 59 et seq. Because this rule only applies to “actions subject to the FFRMS,”100
this rule does not change any FEMA standards applicable to community or individual

Note that FEMA first partially implemented the FFRMS by policy with respect to covered projects in
existing floodplains in its Public Assistance and Hazard Mitigation Assistance programs. See FEMA
Policy 104–22–003, “Partial Implementation of the Federal Flood Risk Management Standard for Public
Assistance (Interim),” June 3, 2022 found at https://www.fema.gov/sites/default/files/documents/fema_fp104-22-0003-partial-implemetnation-ffrms-pa-interim.pdf (last accessed Jan. 24, 2024) and FEMA Policy
206–21–003–0001, “Partial Implementation of the Federal Flood Risk Management Standard for Hazard
Mitigation Assistance Program,” Dec. 7, 2022 found at https://www.fema.gov/sites/default/files/
documents/fema_policy-fp-206-21-003-0001-implementation-ffrms-hma-program_122022.pdf (last
accessed Jan. 24, 2024). Some current FEMA actions may be subject to these partial implementation
policies; however, those actions would not be subject to this final rule or policy.
98 42 U.S.C. 4011(a).
99 42 U.S.C. 4011(a) and (b); 42 U.S.C. 4102; 44 CFR 59.2(b), 59.22(a)(3), 60.1(d).
100 See “Guidelines for Implementing Executive Order 11998, Floodplain Management, and Executive
Order 13690, Establishing a Federal Flood Risk Management Standard and a Process for Further Soliciting
and Considering Stakeholder Input,” 80 FR 64008 (Oct. 22, 2015) (providing notice of the availability of
the Revised Guidelines in the docket for the rulemaking at https://www.regulations.gov/document/FEMA2015-0006-0358 (main content) and https://www.regulations.gov/document/FEMA-2015-0006-0372
(appendices)) also available at https://www.fema.gov/sites/default/files/documents/fema_implementingguidelines-EO11988-13690_10082015.pdf (last accessed Mar. 11, 2024).
participation in any aspect of the NFIP. In general, changes to 44 CFR part 59 et seq
would require a rulemaking to revise the appropriate sections of the CFR.
As an illustrative example, if an NFIP-participating community owns a structure
in a floodplain that has been substantially damaged and the community decides to repair
it using community funds, funding from a flood insurance payment, or other funding that
is not FEMA grant funding, the community’s floodplain management regulations, not the
FFRMS, would apply to the repair project. However, if that same structure was
substantially damaged by a disaster event, and the community applied for assistance
under a FEMA grant program like the Public Assistance program, the FFRMS would
apply to that repair project.
FEMA agrees with the commenter that it is important to adequately staff for
FFRMS implementation. FEMA is accordingly ensuring that sufficient staff at
headquarters and regional offices are appropriately trained to provide technical
assistance. FEMA currently leverages the 8-step process detailed in 44 CFR part 9 as the
mechanism to implement Executive Order 11988. Step 8 of the process found at 44 CFR
§ 9.6(b) requires FEMA to review the implementation and post-implementation phases of
the proposed action to ensure that the requirements stated in § 9.11 are fully
implemented. Under this provision, oversight responsibility is integrated into existing
processes associated with FEMA’s grant management requirements. FEMA is not
making changes to these requirements in the final rule and will continue to use the
current process to ensure compliance with the FFRMS and Executive Order 11988, as
amended. 2 CFR 200.339 also allows FEMA to take action to remedy a recipient's
noncompliance with federal requirements, including those required by 44 CFR part 9,
such as imposing new conditions on the award or deobligating funding for the award if a
recipient does not adhere to the requirements set forth during the part 9 review process.
C. Comments in General Opposition to the Rule

Four commenters expressed opposition to the rule overall. Those commenters
raised concerns about the complexity of the FFRMS approaches, uncertainty about the
CISA standard, and the application of FFRMS to specific types of FEMA actions. The
commenters stated concerns with the potential increased costs associated with
implementing FFRMS and with FEMA’s economic impact analysis accompanying the
rule. The commenters also stated concerns with implementing the FFRMS given
conflicting Federal, State, local, and other requirements. Commenters stated the FFRMS
was a “one-size-fits-all” approach that lacked the flexibility to address regional and local
needs. Commenters stated the use of the CISA introduced uncertainty into the
regulations contrary to the fundamental principles outlined in Executive Orders 12866
and 13563. Commenters also stated FEMA’s analysis of the costs and benefits associated
with the rulemaking did not adequately quantify the costs and benefits of several
components of the risk reduction strategies in the rule. Commenters raised questions
regarding FEMA’s statutory authority to implement the rule. One commenter stated
Congress should define the floodplain. This commenter raised similar concerns
regarding the use of the CISA and lack of data sources that map the FFRMS floodplain.
FEMA responds to some of the general comments in opposition to the rule in the
comment summaries and responses immediately below and responds in more detail to the
remainder of the comments in the following sections of the preamble.
Comment: One commenter requested FEMA extend the comment deadline
associated with the rule for an additional 60 days. The commenter requested an
extension of the comment period given the complexity of the rule and policy and to
implement extensive public outreach.
FEMA Response: FEMA received 48 comments to the public docket associated
with this rulemaking and no other requests to extend the comment period were received.
The 60-day comment period provided is consistent with 44 CFR 1.3(b) and Executive

Orders 12866 and 13563. This timeframe provided a reasonable opportunity for public
comment and is particularly appropriate given FEMA’s prior engagement on this topic.
FEMA completed extensive outreach in 2015 as part of the development and publication
of the Revised Guidelines, and also sought public input in connection with the agency’s
prior NPRM in 2016.101 Additional outreach will be completed as part of the rule’s
implementation as FEMA will distribute additional information to SLTT partners and the
public explaining again what the FFRMS is and how the agency will further implement
the Executive Orders. FEMA’s FFRMS policy will also be reassessed on a four-year
cycle to ensure the approach continues to meet the goals of Executive Order 11988, as
amended. During the four-year review process, FEMA’s FFRMS policy will be
reviewed, revised, extended, and/or rescinded as appropriate.
FEMA does not believe additional engagement is needed to finalize this rule. All
but a few of commenters expressed support for the rule and FEMA’s FFRMS policy and
many requested swift implementation, consistent with the need to protect federal dollars
and communities from increasing flood risk.
Comment: One commenter stated the rulemaking was premature in the absence of
a clearly defined process for implementing the CISA and urged FEMA to withdraw the
rule from consideration. The commenter expressed concern that FEMA will take a
haphazard approach – completing each analysis of the extent and elevation of the CISA
Established by the 2013 Climate Action Plan, the Climate Task Force met with stakeholders from State,
local, Tribal, and territorial governments; private businesses; trade associations; academic organizations;
civil society; and other stakeholders to develop and provide recommendations in November 2014.
President's State, Local, and Tribal Leaders Task Force on Climate Preparedness and Resilience,
Recommendations to the President, (2014), available at https://obamawhitehouse.archives.gov/sites/default/
files/docs/task_force_report_0.pdf at 7 (last accessed Jan. 24, 2024). FEMA, acting on behalf of the
MitFLG and consistent with Executive Order 13690, published a draft of the Revised Guidelines for notice
and comment on February 5, 2015 at 80 FR 6530. During the public comment period, over 25 meetings
were held across the country with State, local, and Tribal officials and interested stakeholders to discuss the
Revised Guidelines. There were also 9 public listening sessions across the country that were attended by
over 700 participants from State, local, and Tribal governments, and other stakeholder organizations to
discuss the Revised Guidelines. The final Revised Guidelines were published on October 22, 2015 at 80
FR 64008. FEMA published a notice of proposed rulemaking to implement FFRMS initially in 2016 at 81
FR 57402 (Aug. 22, 2016) along with a notice of availability and request for comment on a FFRMS policy
at 81 FR 56558 (Aug. 22, 2016) and a notice of availability regarding a draft report at 81 FR 64403 (Sept.
20, 2016).
floodplain on a case-by-case basis and doing so using data that may not be complete or is
not be widely known or available to the public. The commenter stated that in the end,
neither the process nor the outcome will be predictable or replicable.
FEMA Response: FEMA disagrees. This rulemaking is not premature, and
FEMA provided information in and accompanying the NPRM explaining how the CISA
and the FFRMS will be implemented. Each analysis will be completed on a case-by-case
basis consistent with the current 8-step process, which has been in place for over four
decades, to determine the floodplain, but the data used to make the analysis is publicly
available and replicable using the FFRMS CISA State of the Science Report, the FFRMS
Job Aid, and FEMA’s FFRMS policy. As explained above, the FFRMS CISA State of
the Science Report identifies the latest sea level rise projections from the National
Climate Assessment as available and actionable data and the appropriate sea level rise
estimates can be used to approximate future 1 percent annual chance flood levels. These
estimates can simply be added to the current 1 percent annual chance flood elevation to
approximate the future 1 percent annual chance flood level, in low-lying coastal
shorelines on the Atlantic and Gulf Coasts not subject to runup or overtopping. The
FFRMS Job Aid102 provides the methodology FEMA will use to determine the floodplain
and elevation under the CISA where data is actionable and available (namely in lowlying coastal shorelines on the Atlantic and Gulf Coasts consistent with the FFRMS
CISA State of the Science Report). FEMA’s FFRMS policy further explains that the
CISA is used where actionable and available and provides alternatives where such data is
not actionable and/or available. The CISA analysis can be completed using these
publicly available materials for areas with actionable and available data. FEMA

Available at https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determinationjob-aid.pdf (last accessed Mar. 12, 2024).
anticipates actionable and available data will increase over time and the interagency tools
provided will be updated to reflect the new data.
Comments: Two commenters requested FEMA complete additional analyses
before finalizing the rule. Both commenters referenced other flood-related regulatory and
policy actions, including the Technical Mapping Advisory Council (TMAC)’s proposal
to increase the regulatory floodplain and increase the NFIP floodplain management
standards for land management and use; Risk Rating 2.0 for flood insurance premiums;
and USACE’s proposed levee safety updates as well as risk informed decision making.
One commenter requested the rule be deferred until FEMA completed a
cumulative impacts assessment and considered associated actions to mitigate the impacts
of the actions above on communities participating in the NFIP, mapping and
accreditation, low to moderate income families, and disadvantaged communities. The
commenter further requested FEMA withdraw the rule until a regulatory analysis
applying sound cost-benefit analysis principles and a comprehensive socio-economic
impact analyses to address the full and intended scope of FFRMS were completed. The
commenter stated the regulatory impact analysis should address cumulative impacts and
the need for mitigation of impacts to community property values, tax bases, the
distribution of real income, as well as the impacts on affordable housing and low to
moderate income families and disadvantaged communities.
The other commenter stated that different flood regulations and policies may
overlap with or duplicate each other and potentially lead to redundancy, confusion, and
additional costs. The commenter requested FEMA conduct a more thorough quantitative
cost-benefit analysis, considering the cumulative effects of recent floodplain governing
rules to make well informed decisions regarding appropriate risk reduction strategies and
ensure a thorough understanding of the overall impact of the rule’s implementation. The
commenter requested FEMA conduct a comprehensive assessment of cumulative impacts

to ensure a more informed and coordinated approach and requested that FEMA provide
additional documentation on how FFRMS would impact other Federal agencies’
programs, such as USACE’s civil works projects and whether FEMA’s FFRMS policy
would supersede other Federal agencies’ rules and regulations. The commenter stated
FEMA relied on a subjective assessment of the rule’s costs and benefits. The commenter
asked FEMA to closely coordinate with other agencies that typically co-regulate projects,
including USACE with water resources projects.
The commenter also stated that the FFRMS could lead to further deterioration of
key infrastructure, where meeting the new, higher standards is not technically or
financially feasible, resulting in communities leaving the infrastructure to deteriorate in
place and not serve the public need. The commenter stated that these types of costs
should be considered in the regulatory analyses.
FEMA Response: FEMA disagrees this rule should be deferred. While FEMA
understands the commenters’ interest in the policy activities mentioned, the agency does
not believe those actions are relevant to this rulemaking or require additional analysis to
finalize this rule. The commenters reference a recommendation made by the TMAC in a
recent annual report103 that FEMA expand the NFIP regulatory floodplain as defined in
44 CFR 59.1 to which the NFIP’s minimum floodplain management criteria set forth in
44 CFR 60.3 applies, and the commenters suggest that FEMA must delay this rulemaking
until it has analyzed the effects of that recommendation. That is not necessary because
FEMA has not implemented the TMAC recommendation and therefore it has no current
effect on communities. The TMAC is a Federal advisory committee established to review
and make recommendations to FEMA on matters related to the national flood mapping
program authorized under the Biggert-Waters Flood Insurance Reform Act of 2012.104

TMAC 2023 Interim Report, available at https://www.fema.gov/sites/default/files/documents/fema_rmtmac-2023-interim-report-30OCT2023.pdf (last accessed Mar. 28, 2024).
104 42 U.S.C. 4101a.
The national flood mapping program requires FEMA to review, update, and maintain
NFIP rate maps.105 It is outside the scope of this rule.
The commenters also refer to the NFIP’s pricing approach106 for NFIP
policyholders as a new “flood regulation” that requires analysis prior to finalizing this
rulemaking. However, this rulemaking does not impact the NFIP’s site-specific actions,
such as how FEMA rates the premium for a flood insurance policy. Further, the
population of NFIP policyholders is much larger than the number of FEMA grant
recipients who will be impacted by this rule.
One commenter states FEMA needs to account for how the rule will impact
mapping and accreditation under the NFIP; however, the rule does not appreciably
impact those areas of the NFIP. This rule and the accompanying policy implement the
FFRMS for actions where FEMA funds are used for new construction, substantial
improvement or repairs to address substantial damage, and requires that nature-based
solutions and natural features be considered and implemented where possible to all
actions that are subject to Step 3 of the 8-step decision-making process. Nature-based
solutions and natural features must be considered as an alternative action in Step 3.
Where it is not possible to use natural features and nature-based solutions as an
alternative on their own, they would be considered in conjunction with the proposed
action as a minimization measure in Step 5. Neither FEMA’s flood mapping program
nor its accreditation of levees under the NFIP are actions subject to the FFRMS and, to
the extent that any programmatic or policy change to either of those areas are required to
undergo the 8-step process under 44 CFR Part 9, it is unlikely that a consideration of
nature-based solutions will result in changes with demonstrable impacts. FEMA cannot
address the other actions referenced, such as the USACE’s civil works projects and levee

42 U.S.C. 4101b.
Also known as Risk Rating 2.0, Equity in Action. See https://www.fema.gov/flood-insurance/risk-rating
(last accessed Mar. 18, 2024).
105
safety updates, as these involve other Federal agencies, and questions regarding those
actions are best addressed by those agencies directly.
FEMA believes that the commenter’s concerns about this rule’s economic impacts
is inconsistent with this rule’s relatively limited applicability. FEMA defines an “action
subject to the FFRMS” as “any action where FEMA funds are used for new construction,
substantial improvement, or to address substantial damage to a structure or facility,”
consistent with Executive Order 11988, as amended, and the Revised Guidelines. The
FFRMS applies to grants for projects funding the new construction, substantial
improvement, or repair of substantial damage under FEMA programs such as the IA, PA,
and HMA programs, and grants processed by FEMA’s Grants Programs Directorate
(GPD) (involving grants for preparedness activities). This rule does not regulate
privately funded activity in the floodplain. As such, the implementation of the FFRMS
will have negligible impacts on community property values, tax bases, and the
distribution of real income. Additionally, FEMA expects the impacts on affordable
housing for low to moderate income households and disadvantaged communities to be
minimal since most actions subject to FFRMS requirements are non-residential. FEMA
only funds residential construction in the IA and HMA programs; FEMA funds 153
residential IA projects and 268 HMA residential projects per year on average. The
majority of the costs associated with FFRMS requirements will be covered by FEMA
funding.
Comment: A commenter stated the FFRMS policy and rule were one-sided, as
they limited how people could use and live in flood-prone areas without a clear goal to
support economic growth or sensible development within reasonable limits. The
commenter stated Congress likely would not endorse a flood risk strategy that did not
consider using flood-prone areas optimally for the country’s benefit. The commenter
stated the rule’s benefits were unclear given the emphasis on constraints and a lack of

consideration for economic development as part of resilience. The commenter
recommended that FEMA adjust the policy to include efficient and smart use of floodprone areas while acknowledging the limitations on development.
FEMA Response: The revisions to part 9 are consistent with FEMA’s longstanding requirement as part of implementation of Executive Order 11988, as amended,
to only perform or fund actions within or affecting floodplains and wetlands if those
actions are the only practicable alternative. FEMA’s regulations provide for
consideration of the need for economic development and community resilience, while
also bolstering the resilience of communities and Federal assets against the impacts of
flooding. For instance, through the 8-step process, FEMA considers alternative locations,
alternative actions, natural features, nature-based approaches, and the no action
alternative under the practicability analysis. The definition of “practicable” makes clear
that practicability depends on the situation and includes consideration of all pertinent
factors, such as natural environment, social concerns, economic aspects, legal constraints,
and agency authorities. In addition, if there is no practicable alternative, FEMA will
perform or fund the action in the floodplain or wetland and will minimize any adverse
impacts when doing so. Under § 9.9 as well, in determining the practicability of the
alternatives, FEMA considers economic aspects.
D. FEMA’s Authority for Part 9 and Revisions
Two commenters wrote comments concurring with FEMA’s statutory and other
authority for the rulemaking.
Comments: Both commenters stated the rule was a valid use of FEMA’s
regulatory authority, citing to the NFIA, as amended by the Flood Disaster Protection Act
(42 U.S.C. 4001 et seq.), the Stafford Act (42 U.S.C. 5121 et seq.), and the NEPA (42
U.S.C. 4321 et seq.). One commenter noted the Congressional intent in the Stafford Act
for the Federal Government to develop land use and construction regulations to help State

and local governments mitigate risk and reduce losses and FEMA’s broad discretion to
define “safe land use and construction practices” as a condition of Stafford Act funding
for both public and private structures.107 The commenter stated section 101 of NEPA
required FEMA to use all practicable means to ensure Federal plans, programs, and
resources “(1) fulfill the responsibilities of each generation as trustee of the environment
for succeeding generations; (2) assure for all Americans safe, healthful, productive, and
esthetically and culturally pleasing surroundings; [and] (3) attain the widest range of
beneficial uses of the environment without degradation, risk to health or safety, or other
undesirable and unintended consequences” among other priorities.108 The commenter
stated the FFRMS reflects a tradition of executive action to enforce reasonable floodplain
management and wetland protection. Another commenter noted the NFIA and Flood
Disaster Protection Act require FEMA to establish land use criteria for floodplain
management109 and that NEPA requires Federal agencies to evaluate the environmental
and related social and economic effects of their proposed actions, which includes the
evaluation of the impacts of proposed actions in the floodplains.110 Further, the
commenter stated the Stafford Act directed FEMA to encourage “hazard mitigation
measures to reduce losses from disasters, including development of land use and
construction regulations.”111 The commenter stated FEMA’s regulations were consistent
with these legislative directives.
FEMA Response: FEMA agrees with the commenter that the agency has statutory
authority to implement FFRMS. Please refer to section II.B for a description of FEMA’s
statutory authority to implement grant programs and to require its grant recipients to
carry out repairs or construction in accordance with specific standards.

42 U.S.C. 5165a.
42 U.S.C. 4331(b).
109 42 U.S.C. 4102, 42 U.S.C. 4104c.
110 42 U.S.C. 4332(2)(C).
111 42 U.S.C. 5121(b)(5).
107
Three commenters raised concerns regarding FEMA’s legal authority to amend
part 9 and implement FFRMS.
Comment: One commenter stated Congress should establish the definition of
floodplains. The commenter acknowledged defining the geographic scope of a floodplain
was not an easy task, but stated the implications on landowners and others made it a job
best left for Congress. The commenter stated that Congress drafted and debated language
over the last twenty plus years on the issue and stated that Congress has had the
opportunity to revisit and refine Federal floodplain policies as part of NFIP regular
reauthorization process. The commenter stated it was bad public policy to delegate
defining the limits of Federal authority to the agencies, citing to challenges other agencies
have had defining “waters of the United States” and reiterating the need for
Congressional action.
FEMA Response: This comment appears to confuse the definition of floodplain
under the NFIP with the definition of floodplain that is being altered with this
rulemaking, and, as such, makes incorrect statements and assumptions about the role
Congress has played or should play. This rulemaking is not altering the definition of
floodplain under the NFIP. The NFIP is a program through which property owners in
participating communities can purchase Federal flood insurance as a protection against
flood losses.112 As a condition of eligibility, a community must adopt and enforce
floodplain management regulations that meet or exceed the NFIP minimum floodplain
management criteria developed by the Administrator.113 The floodplain and other
definitions governing the NFIP can be found at 44 CFR 59.1. This rulemaking is
updating the definition of floodplain in 44 CFR Part 9 as applied to actions subject to the
FFRMS, defined as actions where FEMA funds are used for new construction, substantial

112
42 U.S.C. 4011(a).
42 U.S.C. 4011(a) and (b); 42 U.S.C. 4102; 44 CFR 59.2(b), 59.22(a)(3), 60.1(d).

improvement, or repairs to address substantial damage to structures and facilities.114 As
set forth, in section II.B, Congress has authorized FEMA to implement grant programs
and to require its grant recipients to carry out repairs or construction in accordance with
specific standards.
Comment: Two commenters requested FEMA cite the specific and clear
Congressional authority for each objective and mandate of FFRMS. Both commenters
noted the President may have the authority to impose mandates on Federal projects as
cost-saving measures, but regulation of private and non-Federal activities within the
floodplain was limited to those jurisdictions where local communities have imposed upon
themselves the burden of floodplain regulation as a condition of participation in the
NFIP. The commenters stated that applying the FFRMS to private and non-Federal
government entities under other regulatory programs was outside FEMA’s statutory
authority.
FEMA Response: Please refer to section II.B for a description of FEMA’s
statutory authority to implement grant programs and to require its grant recipients to
carry out repairs or construction in accordance with specific standards. Contrary to the
commenter’s assertions, this rule applies the FFRMS to FEMA funded projects for new
construction, substantial improvement, and repairs to address substantial damage. It does
not regulate privately funded activity in the floodplain, it does not alter the definition of
floodplain under the NFIP, and it does not apply the FFRMS to any programs other than
FEMA’s grant programs.

See “Guidelines for Implementing Executive Order 11998, Floodplain Management, and Executive
Order 13690, Establishing a Federal Flood Risk Management Standard and a Process for Further Soliciting
and Considering Stakeholder Input,” 80 FR 64008 (Oct. 22, 2015) (providing notice of the availability of
the Revised Guidelines in the docket for the rulemaking at https://www.regulations.gov/document/FEMA2015-0006-0358 (main content) and https://www.regulations.gov/document/FEMA-2015-0006-0372
(appendices)) also available at https://www.fema.gov/sites/default/files/documents/fema_implementingguidelines-EO11988-13690_10082015.pdf (last accessed Mar. 11, 2024).
Comment: One of the commenters stated that FEMA was acting without clear
statutory authority as implementing the FFRMS fell within the scope of a major question
because of the standard’s aggregate economic impacts over time. Two commenters
recommended FEMA remove any application of FFRMS to private and non-Federal
activities covered by permitting, loan, or grant-in-aid programs administered by Federal
agencies except where clear statutory authority has been granted and also sever any and
all objectives related to regulating floodplain activities to protect wetlands. The
commenters stated Federal authority over wetlands was limited by the Clean Water Act
and recent Supreme Court rulings, including Sackett v. EPA.115
FEMA Response: FEMA disagrees the aggregate economic impacts over time
associated with this rulemaking are a matter of such “deep economic and political
significance” as to constitute a “major question,” as described by the Supreme Court in
West Virginia v. EPA.116 While FEMA expects that this rule would carry important
benefits and would ultimately save significant taxpayer dollars, this rule is not akin to the
rule in West Virginia, where the agency’s “own modeling concluded that the rule would
entail billions of dollars in compliance costs (to be paid in the form of higher energy
prices), require the retirement of dozens of coal-fired plants, and eliminate tens of
thousands of jobs across various sectors.”117 This rulemaking requires FEMA grant
recipients to build a subset of the construction projects that FEMA funds to a higher
standard in an expanded floodplain. There is an increase in the costs associated with this
more resilient building standard, but that increase is paid primarily by FEMA and is
ultimately a fraction of what grant recipients might already spend using Federal funds to
accomplish such construction.

Sackett v. EPA, 598 U.S. 651 (2023).
142 S. Ct. 2587 (2022).
117 Id. at 2604.
115
Even if the major questions doctrine did apply, there is clear statutory authority
and longstanding precedent for the rule. FEMA has authority to require application of
the FFRMS as a condition of funding in its grant programs based on the grant programs’
authorizing statutes. Congress granted FEMA the authority to provide Federal assistance
through multiple grant programs under the Robert T. Stafford Disaster Relief and
Emergency Assistance Act (Stafford Act),118 the NFIA,119 the Homeland Security Act of
2002,120 the Federal Fire Prevention and Control Act of 1974,121 the Earthquake Hazards
Reduction Act of 1977,122 and various other appropriations acts. Under each of these
authorities, FEMA may set grant eligibility criteria consistent with the respective
purposes of such programs and FEMA’s mission, including to protect Federal
investments from the risks of further damage.123 Under the Stafford Act and the NFIA,
which authorize the programs that fund the majority of the actions subject to the FFRMS,
FEMA has general rulemaking authority.124 Further, FEMA has explicit authority under
the Stafford Act to set the minimum standards for safe land use and construction

42 U.S.C. 5121 et seq.
42 U.S.C. 4001 et seq.
120 6 U.S.C. 101 et seq; see also 6 U.S.C. 314(a)(12), which specifically charges the Administrator with
supervising various grant programs authorized under the HSA. Such grant programs have long been
governed by floodplain management regulations at 44 CFR part 9, see, e.g., 44 FR 76510 (Dec. 27, 1979),
45 FR 59520 (Sept. 9, 1980). See also, e.g., 2 CFR 200.300(a) (directing Federal awarding agencies to
manage and administer Federal awards in a manner so as to ensure that Federal funding is expended and
associated programs are implemented in full accordance with the U.S. Constitution, Federal Law, and
public policy requirements including, but not limited to, those protecting public welfare and the
environment; and requiring the Federal awarding agency to communicate to the non-Federal entity all
relevant public policy requirements, and incorporate them either directly or by reference in the terms and
conditions of the Federal award.).
121 15 U.S.C. 2229 and 2229a.
122 42 U.S.C. 7701 et seq.
123 See, e.g., 6 U.S.C. 609 (granting FEMA approval authority over grant funds for construction awards
under its Homeland Security Grant Program, State Homeland Security Grant Program, Urban Area Security
Initiative, Operation Stonegarden, Tribal Homeland Security Grant Program, and Nonprofit Security Grant
Program); 6 U.S.C. 1182(d)(1) (granting DHS the authority to determine the grant requirements for the
Intercity Bus Security Grant Program); 6 U.S.C. 1163(c)(1) (granting FEMA the authority to determine the
grant requirements for the Intercity Passenger Rail grant program); 46 U.S.C. 70101 (granting DHS
approval authority over grant funds for construction awards under the Port Security Grant Program); 6
U.S.C. 1135(c)(1) (granting DHS the authority to determine the grant requirements for the Transit Security
Grant Program); 33 U.S.C. 467f-2(c)(2)(A) (granting FEMA the authority to set the minimum eligibility
requirements for the Rehabilitation of High Hazard Dam Program).
124 See 42 U.S.C. 5164; 42 U.S.C. 4128(a) and (b).
118
standards required in the repair or construction of private and public facilities.125 Further,
in the time since Executive Order 11988 was first issued in 1977 and FEMA issued its
implementing regulations at 44 CFR part 9 in 1979 and 1980, Congress has amended
FEMA’s governing authorities multiple times without overriding part 9.126 Consistent
with the approach that FEMA has taken for decades, this rule revises part 9 pursuant to
FEMA’s statutory authorities and in line with Executive Order 11988, as amended.
Finally, the comments related to wetlands and the Supreme Court’s decision in
Sackett v. EPA are not germane to this rulemaking. FEMA’s proposed changes to the
definition of wetlands within the regulation was limited to reorganizing the placement of
examples within the definition and removing an outdated resource. FEMA’s proposed
changes do not change how the agency makes wetland determinations.
E. Definitions

FEMA received over 40 specific comments on the proposed rule’s definitions in §
9.4. Commenters were generally supportive of the proposed revisions but sought
clarification or offered suggestions to enhance the definitions provided in the proposed
rule. FEMA has carefully reviewed the commenters’ suggestions and is not revising the
NPRM definitions in this final rule but is providing multiple clarifications below.
1. General Comments on Definitions
Comments: Commenters requested additional clarity regarding definitions and
additional engagement on definitions generally. A commenter requested FEMA provide
clear definitions and describe abbreviations before they are used in the rulemaking,
policy, and any additional guidance or resources provided. The commenter provided an
example of the term “AC floodplain” used in a graphic without definition. Another
42 U.S.C. 5165a(a)(1)-(2).
See, e.g., Disaster Mitigation Act of 2000, Public Law 106-390, 114 Stat. 1552 (Oct. 30, 2000); PostKatrina Emergency Management Reform Act of 2006, Public Law 109-295, 120 Stat. 1452 (Oct. 4, 2006);
Sandy Recovery Improvement Act of 2013; Pub. L. 113-2, 127 Stat. 47 (Jan. 29, 2013); Disaster Recovery
Reform Act of 2018, Pub. L. 115-254, 132 Stat. 3448 (Oct. 5, 2018).
125
commenter requested FEMA engage stakeholders from a range of relevant backgrounds
in the review process to gather varied perspectives and ensure that definitions are clear
and universally understood.
FEMA Response: FEMA will distribute additional resources to the public and
SLTT partners after the rule’s publication to ensure that stakeholders understand what the
FFRMS is and how the agency will implement the revised part 9. These resources will
include additional examples to help applicants better understand the FFRMS as they
apply for FEMA programs. FEMA appreciates the commenter’s concern and has
updated Figure 1 in the FFRMS policy to clarify “AC floodplain” means “annual chance
floodplain.”
FEMA engaged stakeholders as part of the development and publication of the
Revised Guidelines, which contain most of the definitions FEMA uses in this rulemaking.
Stakeholders also provided specific feedback on the definitions in § 9.4 as part of this
rulemaking effort and FEMA addresses their concerns in this final rule.
2. 0.2PFA
Comment: A commenter expressed support for the definition of the 0.2 percent
annual chance flood elevation (0.2PFA), agreeing with the use of the terminology similar
to annual exceedance probability for defining flow, floodplains, and water surface
elevation in the floodplain.
FEMA Response: FEMA appreciates the commenter’s consideration of the
definition.
3. Agency
Comment: One commenter requested clarification on how the term “agency” was
defined under part 9.

FEMA Response: FEMA defines “agency” in § 9.4 as “the Federal Emergency
Management Agency (FEMA).” FEMA is not changing the definition of “agency” in this
final rule.
4. Critical Action
Comments: Five commenters asked FEMA to further clarify the definition of
“critical action,” stating the definition was too vague and left too much room for
interpretation. Commenters asked for a list of examples of critical actions to support the
definition in § 9.4 and/or sufficient information to distinguish between critical and noncritical actions. One commenter asked FEMA to provide examples related to the
transportation sector and recommended roadways, bridges, and culverts not be considered
critical actions. One commenter requested a process for local representatives to provide
input on what constitutes critical action/critical facilities.
FEMA Response: FEMA’s definition of “critical action” is consistent with
Executive Order 11988, as amended, through the 1978 Guidelines and further clarified in
the Revised Guidelines. FEMA notes the term “critical action” is not new but was
developed and implemented initially with Executive Order 11988 in 1977. The Revised
Guidelines provide further details on what constitutes a critical action. FEMA will
leverage the information in the Revised Guidelines when providing additional guidance
to stakeholders. The determination of whether an action to create or extend the useful life
of a structure or a facility is a critical action is generally made on a case-by-case basis
consistent with the information found in the Revised Guidelines. Local representatives
have input on whether a particular action is a “critical action” as part of the agency’s 8step process.
5. Federal Action
Comment: Two commenters sought clarification on the term “Federal action.”
Commenters sought clarification on what is a “Federal action” subject to the FFRMS and

stated confusion and inconsistency could result among different Federal agencies and
programs implementing the FFRMS. One commenter asked for additional clarification
on whether specific FEMA programs were subject to the FFRMS. That commenter also
sought clarification on how the FFRMS would interact with other Federal laws and
regulations that govern floodplain management, such as the NFIP, NEPA, and the
Endangered Species Act (ESA).
FEMA Response: In this rulemaking, FEMA revises § 9.4 to define “action
subject to the FFRMS” as “any action where FEMA funds are used for new construction,
substantial improvement, or to address substantial damage to a structure or facility.” As
explained above, the requirements of this rule apply to grants for projects funding the
new construction, substantial improvement, or repair of substantial damage under FEMA
programs such as IA, PA, and HMA programs, and grants processed by FEMA’s GPD.
Part 9 only applies to FEMA actions. Other Federal agencies will implement
FFRMS through their own regulations and/or policies. To ensure consistency, all Federal
agencies will utilize the Revised Guidelines in their own FFRMS implementation. Per 44
CFR 9.11(d)(6), no action may be taken if it is inconsistent with the NFIP or any more
restrictive Federal, State, or local floodplain management standards.
FEMA funding actions are also evaluated pursuant to the NEPA, ESA, and other
environmental and historic preservation requirements. The Federal action will not be
approved unless it meets all applicable environmental and historic preservation
requirements.
6. Floodplain
Comments: A commenter requested FEMA coordinate with the agency’s TMAC
to ensure the new rule’s definition of “floodplain” in § 9.4 accounts for potential changes
in the definition and mapping of floodplains recommended by the TMAC. Another
commenter asked how the floodplain would be defined in the FFRMS and if the

floodway would be considered a regulatory floodplain. The commenter stated it was
unclear how the expanded horizontal FFRMS floodplain would impact future State
Department of Transportations’ maintenance work in coordination with the Federal
Highway Administration (FHWA).
FEMA Response: FEMA appreciates the commenter’s concerns. The purpose of
TMAC is to provide analysis under the NFIA. The requirements of Executive Order
11988, as amended, are distinct from TMAC recommendations and thus FEMA disagrees
with the commenter that coordination with TMAC is required to finalize this rule. As
explained above, the TMAC is a Federal advisory committee established to review and
make recommendations to FEMA on matters related to the national flood mapping
program authorized under the Biggert-Waters Flood Insurance Reform Act of 2012.127
The national flood mapping program requires FEMA to review, update, and maintain
NFIP rate maps.128 While the framework FEMA uses in part 9 is distinct from mapping
recommendations for flood prone areas TMAC made in their recent annual report, FEMA
believes that the flexibility outlined in 44 CFR 9.7 and the practice of using the best
available information will allow the application of part 9 to adjust to any change made in
the mapping process should FEMA adopt any of the TMAC recommendations.
As explained in the NPRM in 44 CFR 9.4, FEMA defines the “Federal Flood Risk
Management Standard Floodplain” as the floodplain established using one of the
approaches described in 44 CFR 9.7(c). The floodway and the regulatory floodway are
also defined in 44 CFR 9.4 and are within the floodplain for purposes of part 9. The
requirements of this rule will apply to actions funding the new construction, substantial
improvement, or repair of substantial damage under FEMA programs such as IA, PA, and
HMA programs, and grants processed by FEMA’s GPD. Roads that are under the

127
42 U.S.C. 4101a.
42 U.S.C. 4101b.

jurisdiction of another Federal agency, such as those under the FHWA, are subject to that
agency’s requirements as they generally are ineligible for funding under FEMA’s grant
assistance programs.
7. Nature-based Approaches
While some commenters expressed support for the definition of “nature-based
approaches” in the rule, other commenters requested specific revisions.
Comment: One commenter stated the definition of “nature-based approaches”
failed to take into account a design intent to protect or restore natural processes; and did
not include reference to hybrid gray/green solutions that might be required for restoring
habitat, attenuating floods, and keeping communities safe. The commenter suggested a
definition closer to the “nature-based solutions” definition published on FEMA’s website.
The commenter requested FEMA work with other Federal agencies to agree on common
definitions for key terminology. Further, the commenter recommended that FEMA
remove language stating that nature-based approaches “generally, but not always, must
be maintained in order to reliably provide the intended level of service,” because
maintenance requirements are highly variable and are also generally necessary to
maintain grey infrastructure. The commenter stated that “nature-based solutions
specifically aim to work with nature (as opposed to grey infrastructure solutions that
often are designed to control or work against nature processes) and therefore can be less
susceptible to catastrophic failure or repeated maintenance and can require lower
maintenance costs overall.” This commenter also requested FEMA include “green
infrastructure” when describing the definition. The commenter recommended FEMA
include a broader range of ecosystem-based activities in the description of natural and
nature-based actions, especially those more appropriate for larger or more rural
floodplains. The commenter provided specific scenarios of nature-based approaches.

FEMA Response: FEMA appreciates the commenter’s concerns and believes the
definition as written is appropriate. The definition is consistent with the glossary
definition in the Revised Guidelines. The Revised Guidelines provide broad guidance in
implementing Executive Order 11988, as amended and “offer a common point of
reference so that each agency can use or amend their procedures as appropriate.”129
Consistency with the Revised Guidelines definition helps ensure more consistent
implementation of nature-based approaches across the Federal government and meets the
commenter’s request for FEMA to utilize common terminology with other Federal
agencies. Changes such as those proposed by the commenter would increase the
potential for inconsistency and stakeholder confusion working on projects involving
multiple Federal agencies.
FEMA notes that the Revised Guidelines state that nature-based approaches can
restore natural processes, and the agency does not believe the definition excludes either
protecting or restoring natural processes. For purposes of part 9, nature-based solutions
are specific to floodplains and wetlands, and the commenter’s references to nature-based
solutions on the agency’s website reflects the full range of natural hazards FEMA
programs may mitigate. Regarding maintenance, FEMA believes the language is
appropriate in the definition as written. The use of “maintenance” is to differentiate
between nature-based approaches and natural features. Nature-based approaches are
designed to mimic natural processes, but they are not wholly naturally occurring. As
such, they may require some form of maintenance to ensure they are performing as
intended. In comparison, natural features are those characteristics of the environment
that are naturally occurring and exist in a dynamic equilibrium, so should require little to
no maintenance in serving their purpose. FEMA understands the commenter’s concern
that “green infrastructure” is more expansive than stated in the NPRM and plans to

Revised Guidelines at pg. 13.

provide additional resources that will incorporate examples to address some of the
specific scenarios raised by the commenter. FEMA notes the definition of “nature-based
approaches” states that nature-based approaches are sometimes referred to as “green
infrastructure.”
Comments: Two other commenters requested edits to the definition of “naturebased approaches” to incorporate restoration and conservation of natural systems. The
commenters stated that such edits would ensure all relevant nature-based approaches are
adequately considered. Another commenter recommended expanding the definition of
“nature-based approaches” by removing the reference to “green infrastructure” at the
beginning of the definition and incorporating the statement “Nature-based approaches
include green infrastructure practices, as well as conservation approaches such as the
restoration of wetland and floodplain hydrology and other river processes” into the
definition while also revising the language regarding maintenance to state such
approaches can be self-sustaining or need ongoing maintenance.
FEMA Response: While FEMA appreciates the commenters’ concerns to include
restoration or conservation of naturally occurring systems and processes and concerns
related to green infrastructure, FEMA’s definitions are consistent with the glossary
definition in the Revised Guidelines and the changes proposed by the commenters could
result in inconsistencies including inconsistent implementation across other Federal
agencies. As explained above, the Revised Guidelines help ensure key terminology is
consistent across Federal agencies implementing FFRMS. The Revised Guidelines state
that nature-based approaches can restore natural processes, and FEMA does not believe
the definition excludes restoring or conserving natural systems. FEMA will provide
additional resources with additional examples of nature-based approaches including more
information on green infrastructure to address the commenters’ concerns. FEMA will

also coordinate with other Federal agencies regarding the use of nature-based solutions as
part of the FFRMS implementation.
FEMA appreciates the commenter’s suggestion to specifically reference “the
restoration of wetland and floodplain hydrology and other river processes” in the
definition of “nature-based approaches,” but disagrees that such an edit is needed to the
definition to address the commenter’s concerns.
FEMA’s longstanding requirements in 44 CFR 9.11 outline the agency’s
requirements to restore and preserve the natural and beneficial values served by
floodplains and wetlands. This requirement to restore and preserve the values served by
floodplains and wetlands, see, e.g., 44 CFR 9.11(b)(3) & (e), applies to all actions located
within a floodplain or wetland or that affect a floodplain or wetland, including actions
that use nature-based approaches.
As explained above, the use of “maintenance” is to differentiate between naturebased approaches and natural features and FEMA does not believe the changes suggested
by the commenter are appropriate. Nature-based approaches are designed to mimic
natural processes, but they are not wholly naturally occurring. As such, they may require
some form of maintenance to ensure they are performing as intended. In comparison,
natural features are those characteristics of the environment that are naturally occurring
and exist in a dynamic equilibrium, so should require little to no maintenance in serving
their purpose. FEMA understands the commenter’s concern that “green infrastructure” is
more expansive than stated in the NPRM and plans to provide additional resources that
will incorporate examples to address some of the specific scenarios raised by the
commenter. FEMA notes the definition of “nature-based approaches” states that naturebased approaches are sometimes referred to as “green infrastructure” and the proposed
changes merely restate language already incorporated into the definition.

Comment: One commenter restated concerns from a 2016 NPRM comment that
the current definition listed “green roofs” or “downspout disconnection” as examples of
nature-based approaches, and recommended FEMA provide more applicable examples of
nature-based approaches, including “property acquisitions and relocations;” “dam
removal;” “levee notching, setbacks, or removal;” and “stream crossing upgrades.” The
commenter also recommended FEMA expand the definition of nature-based approaches
to encompass the restoration and conservation of natural features, providing added
emphasis on the use of actions to bolster natural flood risk and water quality management
services.
FEMA Response: FEMA’s definition of “nature-based approaches” in the final
rule, like the definition in the NPRM, does not contain “green roofs” or “downspout
disconnection.” FEMA’s definition is consistent with the Revised Guidelines glossary
definition and, as explained above, the changes proposed by the commenter could result
in inconsistencies including inconsistent implementation across other Federal agencies.
While FEMA appreciates the commenters’ concerns to include restoration or
conservation of naturally occurring systems and processes and concerns related to green
infrastructure, the Revised Guidelines help ensure key terminology is consistent across
Federal agencies implementing FFRMS. Although the Revised Guidelines state that
nature-based approaches can restore natural processes, FEMA does not believe the
definition excludes either protecting or restoring natural processes.
FEMA referred to green roofs and downspout disconnection in the preamble to
the NPRM as potential examples of green infrastructure, but not as part of the proposed
regulatory definition. See 88 FR at 67890. As part of implementing this final rule,
FEMA will provide additional resources with additional examples to address the
commenter’s concerns as explained above.

Comment: One commenter asked how FEMA defines natural systems and
ecosystem processes.
FEMA Response: FEMA defined “nature-based approaches” and “natural
features” in proposed § 9.4. FEMA believes those definitions are sufficient and the terms
the commenter used are generally accepted terms found in Executive Order 11988, as
amended, that do not require additional definition in this final rule.
8. Natural and Beneficial Values of Floodplains and Wetlands and Natural
Features
FEMA received three comments on the definitions of “natural and beneficial
values of floodplains and wetlands” and “natural features.”
Comment: One commenter requested FEMA incorporate more explicit references
to biodiversity, ecosystem functioning, and natural values into the regulation and
requested “habitat connectivity” be added to the definition of “natural and beneficial
values of floodplains and wetlands” as an example under “Living Resource Values.”
FEMA Response: FEMA respectfully declines the commenter’s request, as the
agency believes the concept habitat connectivity is adequately addressed under Living
Resource Values through the changes made in this final rule. Specifically, the final rule
describes Living Resource Values as “providing habitats and enhancing biodiversity for
fish, wildlife, and plant resources.” This language adequately encompasses habitat
connectivity, and no edits are required to the final rule.
Comment: A commenter requested FEMA include “functions” in addition to
values when referring to protecting or restoring floodplains and wetlands to read “the
beneficial functions and values of floodplains and wetlands.”
FEMA Response: FEMA’s definition of “natural and beneficial values of
floodplains and wetlands” incorporates functions and FEMA does not believe additional
edits are required.

Comment: One commenter supported the changes proposed to the definitions of
“natural and beneficial values of floodplains and wetlands,” and “wetlands” and
additional definitions for “nature-based approaches” and “natural features” and requested
FEMA develop post-regulatory guidance on functional floodplains and wetlands and
nature-based solutions.
FEMA Response: FEMA agrees the changes to the definitions of “natural and
beneficial values of floodplains and wetlands” and “wetlands” and the addition of
definitions for “nature-based approaches” and “natural features” are helpful features of
the rule. FEMA will distribute additional resources to SLTT partners and the public
identifying what the FFRMS is, and how the agency will further implement the Executive
Orders and part 9.
9. New Construction
Comment: One commenter recommended the definition of “new construction”
include “allowed new construction” associated with systems that must be located in the
floodplain for supplementing water supply. The commenter requested the rule require
consideration of specific stormwater runoff requirements for construction that must be
completed in the floodplain and that FEMA recognize managed aquifer recharge (MAR)related activities might be subject to other State and/or Federal regulation.
FEMA Response: The definition of “new construction” in part 9 must be broad in
nature to support the various types of projects and activities FEMA may perform or fund.
FEMA specifically incorporated examples in the definition of “new construction” to
relate to typical FEMA actions, but those examples are not exhaustive. Under the 8-step
decision-making process, FEMA identifies and evaluates practicable alternatives. If there
is no practicable alternative outside of the floodplain, such as for functionally dependent

uses, 130 the action may be carried out in the floodplain. The types of actions described
by the commenter (managed aquifer recharge floodwater storage retention, spillways,
injection wells and other built systems that must be located in the floodplain for their
intended purpose of supplementing water supply), would be determined to be
functionally dependent uses with likely no alternative outside of the floodplain. FEMA
believes no changes are required to the regulation language, as those types of actions
would be allowable subject to the application of the FFRMS and the minimization
requirements outlined in 44 CFR 9.11. FEMA notes some agency actions will also be
subject to other Federal, State, Tribal, territorial, and/or local requirements and FEMA
addresses this issue in the FFRMS policy.
10. Practicable
Comments: Two commenters were supportive of the definition of “practicable.”
FEMA Response: FEMA agrees with the commenters that the updated definition
of “practicable” in § 9.4 ensures nature-based approaches are considered as practicable
alternatives consistent with Executive Order 11988, as amended.
Comment: One commenter stated the definition of “practicable” was extremely
vague and might not provide sufficient guidance to ensure meaningful comparison of
alternatives. Recognizing the agency’s need for a broad definition to account for
differences in situations, the commenter noted the definition did not provide much
guidance to determine what is truly “practicable,” as opposed to merely expedient. The
commenter requested FEMA require consideration of long-term environmental,
community, and economic benefits and costs of an alternative, to ensure practicability
determinations were not skewed towards grey infrastructure or in-floodplain actions. The

Functionally dependent use means those actions which cannot perform their intended function unless
they are located in or in close proximity to water. See 44 CFR 9.4.
commenter wrote those actions appeared cheaper or more convenient in the short-term
but carried greater long-term adverse effects, risks, and/or costs.
FEMA Response: FEMA did not make significant changes to the definition of
“practicable.” The changes made in the NPRM and finalized in this rule add an agency
authorities factor to clarify the agency’s statutory and regulatory authorities may also
limit FEMA’s actions. These changes also updated the factors for consistency with the
Revised Guidelines. FEMA does not believe additional changes are required to the
definition of “practicable” as the factors listed are not all inclusive. The regulatory text in
§ 9.9 also provides examples and FEMA will provide additional examples in resources to
SLTTs and the public to further clarify as appropriate.
11. Restore
Comment: One comment requested the agency provide examples of what “natural
functions” of the floodplain means and specifically include “wildlife habitat and
connectivity, carbon sequestration, and water quality improvement.”
FEMA Response: FEMA’s definition of “restore” in § 9.4 does not require the
revisions requested. FEMA’s definition of the “natural and beneficial values of
floodplains and wetlands” provides examples of what natural functions of the floodplain
mean and additional edits are not required to address the commenter’s concerns.
Specifically, the definition provides some examples but is not all inclusive. FEMA can
provide additional examples in resources to SLTTs and the public to further clarify as
appropriate.
12. Structures and Facilities
Comment: One commenter recommended linear transportation structures not fall
under the definition of “structures.”
FEMA Response: FEMA defines both “structures” and “facilities” in § 9.4 and
the agency believes these definitions are sufficiently clear. In the FFRMS policy, FEMA

addresses both structures and facilities and how the agency will apply FFRMS to each.
See section G of the FFRMS policy for more guidance on facilities. FEMA edited the
FFRMS Policy accompanying this final rule to further clarify that section G.2 applies to
“facilities.” Linear transportation structures fall under the definition of “facilities” for
purposes of this part.
13. Wetlands
While one commenter wrote in support of the revised definition of “wetlands,”
three other commenters requested revision to the definition.
Comment: One commenter stated the use of the United States Fish and Wildlife
Service (USFWS) 's wetlands definition was problematic, stating in their experience,
USFWS declined to engage on projects unless the projects involved species protected by
the Endangered Species Act (ESA) and their habitat. The commenter noted water
projects and developments involve regulation by the U.S. Army Corps of Engineers
(USACE) more often than with USFWS, and recommended FEMA revise the definition
of “wetlands” to use the USACE's long-standing wetland definition.
FEMA Response: FEMA appreciates the commenter’s suggestion and declines to
change the definition as the agency believes the reference to USFWS is more appropriate
than to USACE’s definition. FEMA’s definition is consistent with the definition of
“wetlands” in Executive Order 11990 and the agency is implementing that Executive
Order with this regulation. FEMA believes changes to this definition may result in
conflating the implementation of Executive Order 11990 with the Clean Water Act.
While the commenter is correct that the USACE definition focuses on flood attenuation
or mitigation, FEMA’s part 9 implementation goes beyond those considerations for
wetlands. FEMA also notes the agency performs Section 7 consultation with USFWS
under ESA for actions that affect protected species or critical habitat.

Comment: One commenter recommended FEMA retain the reference to the
specific publication provided in the definition of “wetlands.” The commenter stated the
publication provided extensive examples and further clarification of what should be
considered wetlands and was still used in the definition by the USFWS. The commenter
requested the definition be updated to the correct year of publication in the final rule.
FEMA Response: FEMA’s definition is consistent with the definition of
“wetlands” in Executive Order 11990, and the agency is implementing that Executive
Order with this regulation. FEMA believes deleting the reference to a specific
publication in the regulations will not result in a less specific definition as the commenter
states. Eliminating references to specific publications helps reduce the potential for the
regulations to be outdated if the publication is updated or replaced. As the commenter
pointed out, the current regulatory text does not reference the correct year of the
publication and the final rule will eliminate confusion around this point. FEMA still
anticipates remaining consistent with the USFWS definition for purposes of part 9.
Comment: One commenter recommended the final rule specify whether
artificially induced and/or isolated wetlands were included and add clearer agency
expectations for subsections under the agency’s FFRMS policy, particularly those
involving wetlands.
FEMA Response: FEMA has not changed how the 8-step process applies to
wetlands and does not intend to as part of FFRMS implementation in this rulemaking.
FEMA’s definition is consistent with the definition of “wetlands” in Executive Order
11990 and the agency is implementing that Executive Order with this regulation. FEMA
believes the commenter is conflating the implementation of Executive Order 11990 with
the Clean Water Act and FEMA’s part 9 implementation goes beyond those
considerations for wetlands.
14. Additional Definitions Requested

In addition to the new and revised definitions provided in the NPRM, commenters
requested FEMA add definitions to the final rule.
Comment: One commenter stated the need for clearer definitions was paramount
to avoiding ambiguity and ensuring a shared understanding of key terms. The commenter
referenced the Climate-Informed Science Approach (CISA) as a term lacking a definition
in the rule as an example of the need for more clarity.
FEMA Response: FEMA appreciates the commenter’s concerns but changes to
the final rule are not required to resolve those concerns. FEMA’s explanation of the
Climate-Informed Science Approach is consistent with Executive Order 11988, as
amended, and the Revised Guidelines. Rather than providing specific definitions in
regulatory text, FEMA describes each approach in § 9.7(c) and in the FFRMS policy.
FEMA believes these explanations are sufficiently clear and, because they are consistent
with the Executive Order and Revised Guidelines, will not result in ambiguity.
Comment: One commenter recommended adding a definition of “development”
for consistency with the NFIP at 44 CFR part 59. The commenter also recommended
adding a definition of “non-critical actions” to help define structures and facilities that
clearly do not fall under the critical action standard and reduce misunderstandings.
FEMA Response: FEMA defines “support of floodplain and wetland
development” in § 9.4 and a definition of “development” is incorporated into that
definition. In the FFRMS policy, FEMA clarifies what constitutes a non-critical action as
any activity that does not meet the definition of critical action. FEMA does not believe a
specific definition in the regulatory text is necessary given the definition of “critical
action” already provided in § 9.4.
F. FFRMS Applicability
Commenters requested clarification on the applicability of FFRMS generally as
well as to specific types of actions.
1. Generally

Comments: Two commenters sought clarification on the Federal actions that are
subject to FFRMS. Both commenters stated that the term “action subject to the FFRMS”
could cause misinterpretation or confusion among different Federal agencies
implementing the FFRMS. Another commenter asked whether the regulation and
FFRMS policy would affect only new construction funded by FEMA. The commenter
recommended a clarification to help States understand where FEMA’s regulations
implementing the FFRMS apply and whether FFRMS applied to State DOT projects
funded through FHWA. The commenter also recommended FEMA clarify how the
FFRMS applied to FEMA-funded, non-FEMA but still Federally-funded, and Statefunded activities.
FEMA Response: FEMA defines “action subject to the FFRMS” as “any action
where FEMA funds are used for new construction, substantial improvement, or to address
substantial damage to a structure or facility,” consistent with Executive Order 11988, as
amended, and the Revised Guidelines. FEMA believes this definition is sufficiently
clear. As explained in the preamble to the NPRM, 44 CFR part 9 applies to FEMA
actions. As explained above, the requirements of this rule apply to grants funding the
new construction, substantial improvement, or repair of substantial damage under FEMA
programs such as IA, PA, and HMA programs, and grants processed by FEMA’s GPD
(involving grants for preparedness activities). All Federal agencies will utilize the
Revised Guidelines for their own FFRMS implementation. Roads that are under the
jurisdiction of another Federal agency, such as those under the FHWA, are subject to that
agency’s requirements as they generally are ineligible for funding under FEMA’s grant
assistance programs.
As explained in § 9.5(a)(3), FEMA will apply FFRMS only to new actions for
which assistance is made available pursuant to declarations under the Stafford Act that
are commenced on or after the effective date of the final rule, and new actions for which

assistance is made available pursuant to notices of funding opportunity that publish on or
after the effective date of the final rule. Ongoing projects will not be impacted by this
final rule.131
Comment: A commenter requested FEMA clearly define how Federally funded
expansions, renovations, rebuild, rehabilitations and similar activities would be impacted
by the FFRMS. The commenter noted many infrastructure projects are not static
structures, but rather periodically require rehabilitation, renovation, and/or expansion and
thus would include a combination of rehabilitation of existing construction, modification
of existing infrastructure, and entirely new infrastructure elements that would be
combined during a project to create the “new” final structure and/or system. The
commenter stated that FFRMS seemed to apply only to new structures that can be sited or
elevated without moving or damaging existing construction and requested confirmation
of that understanding. Another commenter commended FEMA’s proposed policy
provisions for identifying actions that might be subject to determinations of substantial
damage or substantial improvement.

FEMA Response: Part 9 does not apply only to new structures, and FEMA
believes the rule and FFRMS policy are sufficiently clear on this point. As stated above,
FEMA defines “action subject to the FFRMS” as “any action where FEMA funds are
used for new construction, substantial improvement, or to address substantial damage to a
structure or facility,” consistent with Executive Order 11988, as amended, and the
Revised Guidelines.

Note that FEMA first partially implemented the FFRMS by policy with respect to covered projects in
existing floodplains in its Public Assistance and Hazard Mitigation Assistance programs. See FEMA
Policy 104–22–003, “Partial Implementation of the Federal Flood Risk Management Standard for Public
Assistance (Interim),” June 3, 2022 found at https://www.fema.gov/sites/default/files/documents/fema_fp104-22-0003-partial-implemetnation-ffrms-pa-interim.pdf (last accessed Jan. 24, 2024) and FEMA Policy
206–21–003–0001, “Partial Implementation of the Federal Flood Risk Management Standard for Hazard
Mitigation Assistance Program,” Dec. 7, 2022 found at https://www.fema.gov/sites/default/files/
documents/fema_policy-fp-206-21-003-0001-implementation-ffrms-hma-program_122022.pdf (last
accessed Jan. 24, 2024). Some current FEMA actions may be subject to these partial implementation
policies; however, those actions would not be subject to this final rule or policy.
In § 9.4, FEMA defines “new construction” in this final rule as “the construction
of a new structure or facility or the replacement of a structure or facility which has been
totally destroyed. New construction includes permanent installation of temporary
housing units because even though such housing may initially have been planned to be
temporary, when it is permanently installed, it becomes a permanent housing solution for
survivors. New construction in wetlands includes draining, dredging, channelizing,
filling, diking, impounding, and related activities.” Also in § 9.4, FEMA further defines
“substantial improvement” as any repair, reconstruction or other improvement of a
structure or facility, which has been damaged in excess of, or the cost of which equals or
exceeds, 50 percent of the pre-disaster market value of the structure or replacement cost
of the facility (including all “public facilities” as defined in the Stafford Act) (1) before
the repair or improvement is started, or (2) if the structure or facility has been damaged
and is proposed to be restored. Substantial improvement includes work to address
substantial damage to a structure or facility. As it related to the commenter’s stated
concern, if a facility is an essential link in a larger system, the percentage of damage will
be based on the cost of repairing the damaged facility relative to the replacement cost of
the portion of the system which is operationally dependent on the facility. The term
“substantial improvement” does not include any alteration of a structure or facility listed
on the National Register of Historic Places or a State Inventory of Historic Places.
Where an action falls under one of the definitions above, it would be considered an action
subject to FFRMS.
The revisions to part 9 do not change FEMA’s long-standing requirement as part
of implementing Executive Order 11988, as amended, to only perform or fund actions
within or affecting floodplains if those actions are the only practicable
alternative. Through the 8-step process, FEMA considers alternative locations,
alternative actions, nature-based solutions, and the no action alternative under the

practicability analysis. If there is no practicable alternative, FEMA will perform or fund
the action and will minimize any adverse impacts when doing so.
2. FEMA Specific Programs
Commenters also commented on the applicability of FFRMS to specific FEMA
programs.
Comments: Some commenters stated support for FEMA’s policy regarding
FFRMS applicability to temporary and permanent housing. One commenter requested
FEMA give careful consideration to potentially unintended consequences of greatly
expanded requirements for victims of a catastrophic disaster in need of emergency federal
disaster assistance. The commenter cited a study related to the impacts of Hurricane Ian
and discussed how the flood extent in many areas was approximated by the Special Flood
Hazard Area (SFHA) boundaries, noting without constraints in development in the
SFHA, flood damages for the area studied would have skyrocketed. Another commenter
expressed concern that the proposed rule could increase local costs and delay affordable
housing projects. The commenter requested FEMA consider ways to advance affordable
housing projects, such as through expansion of its “Housing Mitigation Assistance”
grants and requested the agency make accommodations for such projects to support a
more expeditious regulatory process.
FEMA Response: FEMA appreciates the commenter’s interest in the agency’s
Individuals and Households Program. FEMA’s revisions in § 9.13 reflect the agency’s
consideration of the need for disaster survivors to quickly recover, while also addressing
the need for more resilient housing. FEMA notes this rulemaking will not expand the
SFHA for NFIP purposes nor does it apply to a local community’s permitting processes
under the NFIP’s floodplain management regulations. Those regulations are found at 44
CFR part 59 et seq. FEMA notes the agency does not have “Housing Mitigation
Assistance” grants, but where FEMA provides funding for housing, the agency will

consider social concerns and economic aspects as part of the practicability analysis in the
8-step process.
Comments: Multiple commenters referenced the NFIP and FFRMS applicability.
One commenter stated that FEMA only applies the 8-step process programmatically to
the NFIP as a whole. The commenter further noted the FFRMS would only apply to new
construction or substantial improvement to existing structures or facilities that receive
FEMA funding. The commenter stated support for exempting all privately funded
activities from the FFRMS as those activities were beyond the scope of FEMA’s
authority and would create challenges in determining the geographic scope of the FFRMS
defined floodplain and increased construction costs that would negatively impact housing
affordability.
Another commenter wrote asking if the FFRMS policy would impact where new
flood insurance policies could be issued. The commenter recommended FEMA consider
coordinating with other Federal agencies and expanding the Coastal Barrier Resources
Act (CBRA) and/or identifying additional areas where new flood insurance policies could
not be issued based on FFRMS approaches.
A third commenter wrote the work needed to restore floodplain connectivity
should have a streamlined regulatory process and additional financial and technical
support to meet regulatory burdens. The commenter stated a fundamental tenet of the
NFIP was to discourage increases in base flood elevation from “traditional development,”
whereas floodplain restoration projects are intended to increase the base flood elevation
in areas where it is safe and socially acceptable to do so. The commenter stated
floodplain restoration work was urgently needed in many flood-prone areas, but the NFIP
requirements hindered federal investments in floodplain restoration work. The
commenter stated that regulatory reforms are needed to ensure Federal restoration dollars
could be leveraged to help reduce flood risks and damages.

FEMA Response: FEMA agrees with the commenter that privately funded
activities are not subject to this rule. This rulemaking is not regulating privately funded
action; instead, this rulemaking applies to actions subject to the FFRMS, i.e., Federally
funded projects for new construction, substantial improvement, and repairs to address
substantial damage. For the purposes of regulating private activities, the NFIP’s
floodplain management standards will continue to generally apply in NFIP participating
communities.132 The commenter is also correct that FEMA applies part 9
programmatically to the NFIP.133 Notwithstanding the programmatic application of part 9
to the NFIP, the expanded floodplain established under this rule has no impact on where
new flood insurance policies may be issued (including community eligibility for the NFIP
participation and individual premiums) because the expanded floodplain only applies to
actions subject to the FFRMS.
In short, part 9 does not apply to the issuance of flood insurance policies. This
rule and accompanying policy will have no effect on where new flood insurance policies
may be issued. FEMA notes that only Congress can expand CBRA, and USFWS has
primary authority for the implementation of CBRA. While FEMA appreciates the
commenter’s concerns regarding floodplain restoration, regulatory reforms to the NFIP
suggested by the commenter are beyond the scope of this rulemaking.
3. Facilities
Four commenters had questions regarding the applicability of the final rule and
FFRMS policy to facilities.
Comment: A commenter recommended FEMA clarify special considerations for
infrastructure projects by providing more information and guidance on how to implement

The NFIP’s floodplain management standards are generally found at 44 CFR 60.3. There are variances
and exceptions from the standards written into 60.3. Additionally, some communities have higher
standards above the NFIP’s floodplain management minimum requirements.
133 A comprehensive list of FEMA programs to which Part 9 does not apply appears at 44 CFR 9.5. The
exemption for actions under the NFIP is located at 44 CFR 9.5(f).
FFRMS for “facilities.” The commenter stated essential facilities like roadways,
bridges, and utilities might be vulnerable to flood damage and required even more
attention, but the rule was largely silent as to how FFRMS applied to these projects.
The same commenter wrote of their experience with agencies struggling to
adequately assess relevant flood risks when evaluating vital facilities and recommended
incorporating language into Steps 1 and 5 of the 8-step process, clarifying appropriate
considerations and methods to apply the FFRMS to facilities. The commenter requested
FEMA set forth factors to consider when defining the FFRMS floodplain for facilities
(such as considering a larger project area and vulnerability of nearby assets that could be
affected) to encourage better, more informed decisions. The commenter also
recommended FEMA revise § 9.11 to clarify that although elevation is not universally
required for facilities, mitigation measures for facilities subject to the FFRMS must be
designed to be resilient to the FFRMS flood elevation.
Another commenter encouraged FEMA to provide more information and
guidance in the final rule on implementing the FFRMS for facilities. The commenter
stated that most facilities would likely require different implementation considerations
and standards than those defined in the rule for structures. The commenter stated that
elevation may not be an appropriate means to improve or achieve resilience for facilities
and requested that the final rule and related guidance provide variables to consider, which
could help define appropriate resilience measures in addition to or in place of elevation.
FEMA Response: FEMA appreciates the commenter’s references to challenges
with assessing relevant flood risks for vital facilities and infrastructure. As the
commenter notes, several factors must be considered when implementing the FFRMS for
facilities. FEMA believes that the agency’s 8-step process and implementing policy
account for the specific concerns raised in the examples provided. The agency’s policy
reflects a preference for using the CISA that considers sea level rise and FEMA’s

practicability analysis incorporates social concerns and economic aspects into the 8-step
process. FEMA’s revisions to part 9 reflect consideration of the type and criticality of the
action involved, the availability and actionability of the data, and equity concerns in the
implementation of Executive Order 11988, as amended. FEMA also has an agency-wide
initiative focused on reducing barriers and increasing opportunities so that all people,
including those from vulnerable and underserved communities, can get help when they
need it.134Additionally, FEMA reviews all proposed FEMA-funded actions for potential
disproportionate and adverse human health and environmental effects on communities
with environmental justice concerns using a standardized environmental justice
compliance review process.
For the reasons described below, FEMA’s current proposed FFRMS policy uses
the FFRMS flood elevation and corresponding floodplain to establish the minimum level
to which a structure or facility must be resilient. For facility projects that are subject to
the FFRMS, the FFRMS flood elevation represents the magnitude of flooding that must
be considered in incorporating flood resilient design features into project designs. This
approach allows the FFRMS to be integrated as one element of project-specific
comprehensive design methods and leaves open the possibility of more prescriptive
design requirements as infrastructure design methods improve, better incorporating
consideration of continually changing hazard conditions.
Due to the vast diversity of facilities, the highly project-specific nature of
facilities projects, and numerous options for making them resilient, infrastructure
standards (in terms of narrowly scoped specifications) to reduce risk from climate change
and future conditions currently do not exist on a national level. This lack of established
standards, and the long timeline necessary to develop them, requires consideration of less

See https://www.fema.gov/emergency-managers/national-preparedness/equity (last accessed Jan. 24,
2024).
prescriptive approaches. In the absence of such standards, Federal agencies that oversee
construction of infrastructure projects such as the FHWA and USACE apply projectspecific risk assessment and adaptive management approaches, which generally require
data collection, detailed studies, benefit-cost analyses, and consideration of various
alternatives, adaptation, and mitigation measures.135
FEMA already incorporates many of these approaches into its grant requirements.
FEMA Recovery Interim Policy 104-009-11 Version 2.0, “Consensus-Based Codes,
Specifications and Standards for Public Assistance” (December 20, 2019) requires
“application of the latest nationwide consensus-based codes, specifications and standards
that incorporate hazard resistance for PA funded projects,” including buildings, electric
power, roads, bridges, potable water, and wastewater.136 Appendix A of the policy
includes an extensive list of risk assessment and adaptive management methods which
applicants are required to use “as the minimum design criteria for eligible projects.”
Eligibility for Hazard Mitigation Assistance funding requires SLTT partners to have upto-date hazard mitigation plans, which incorporate community-wide risk assessment and
adaptive management approaches applicable to facilities or linear infrastructure.
Further, FEMA does not believe changes to the final rule are required as the
regulation applies the 8-step process to any action, as defined in 44 CFR 9.4, which

See, e.g., Federal Highway Administration Hydraulic Engineering Circular No. 17, 2nd Ed: Highways in
the River Environment – Floodplains, Extreme Events, Risk, and Resilience 2016, available at
https://www.fhwa.dot.gov/engineering/hydraulics/library_arc.cfm?pub_number=2&id=162 (last accessed
Jan. 24, 2024), Federal Highway Administration Hydraulic Engineering Circular No. 25, 2nd Ed:
Highways in the Coastal Environment October 2014, available at
https://www.fhwa.dot.gov/engineering/hydraulics/pubs/nhi14006/nhi14006.pdf (last accessed March 28,
2024), US Army Corps of Engineers Engineering and Construction Bulletin 2018-14: Guidance for
Incorporating Climate Change Impacts to Inland Hydrology in Civil Works Studies, Designs, and Projects,
available at https://wbdg.org/ffc/dod/engineering-and-construction-bulletins-ecb/usace-ecb-2018-14 (last
accessed Jan. 24, 2024), and US Army Corps of Engineers Engineer Regulation No. 1100-2-8162:
Incorporating Sea Level Change in Civil Works Programs, June 2019, available at
https://www.publications.usace.army.mil/USACE-Publications/EngineerRegulations/udt_43546_param_orderby/Pub_x0020_Number/udt_43546_param_direction/descending/?udt
_43546_param_page=3 (last accessed Jan. 24, 2024).
136 https://www.fema.gov/sites/default/files/202005/DRRA1235b_Consensus_BasedCodes_Specifications_and_Standards_for_Public_Assistance122019.pd
f (last accessed Apr. 2, 2024).
includes facilities. In the 8-step process, FEMA considers not just whether proposed
actions would be in a floodplain or wetland, but also whether the proposed action would
affect a floodplain or wetland. FEMA has routinely applied Steps 1 and 5 to facilities.
FEMA also applies Step 4, which identifies impacts of a proposed action at and beyond
the proposed action location. FEMA will distribute additional resources for the public
and SLTT partners to help identify what the FFRMS is, and how the agency will
implement the Executive Orders. These resources will help applicants better understand
the FFRMS as they apply for FEMA programs.
Section G.2. of FEMA’s FFRMS policy discusses flood risk minimization for
facilities. FEMA’s FFRMS policy uses the FFRMS flood elevation and corresponding
floodplain to establish the minimum level to which a structure or facility must be
resilient. For facilities projects that are subject to the FFRMS, the FFRMS flood
elevation represents the magnitude of flooding that must be considered in incorporating
flood resilient design features into facility project designs. This approach allows the
FFRMS to be integrated as one element of project-specific comprehensive design
methods, and leaves open the possibility of more prescriptive design requirements as
infrastructure design methods improve, better incorporating consideration of continually
changing hazard conditions.
FEMA further believes that revising the text of § 9.11 to clarify that mitigation
measures for facilities subject to FFRMS must be designed to be resilient to the FFRMS
flood elevation, as the commenter requested, is not necessary. As the commenter noted,
this point is made in the FFRMS policy, and FEMA does not believe changes to the
regulatory text are required to achieve the FFRMS resilience.
Comment: One commenter raised several questions regarding FFRMS
implementation and facilities. The commenter stated that building transportation
infrastructure to survive extreme events is a good investment, but the FFRMS is overly

conservative and based on risk of low probability. The commenter asked about the
applicability of part 9 and the FFRMS to a range of potential actions from linear
transportation structures to roadways, bridges, and culverts and raised concerns with how
FFRMS application to these types of actions might raise conflicts with other Federal,
State, or local agencies. The commenter also stated concerns about elevating facilities
and provided an example of where the FFRMS would elevate a bridge to a height greater
than the flood-prone height of the connecting roads. The commenter recommended
FEMA clarify roadways and associated bridges and culverts were not required to perform
an alternatives analysis for their location in a floodplain.
FEMA Response: FEMA appreciates the commenter’s concerns regarding the
applicability of FFRMS and part 9 to specific infrastructure projects. FEMA defines both
“structures” and “facilities” in § 9.4 and the agency believes these definitions are
sufficiently clear to explain FFRMS and part 9 applicability to specific actions.
Executive Order, 11988, as amended, requires both structures and facilities be resilient
against current and future flood hazards. FEMA believes that, as described by the
commenter, roadways, bridges, culverts, and linear transportation structures would fall
under the definition of “facilities” for this part and thus would not necessarily be exempt
from part 9.
As explained above, FEMA defines “action subject to the FFRMS” as “any action
where FEMA funds are used for new construction, substantial improvement, or to address
substantial damage to a structure or facility.” The FFRMS applies to grants for projects
funding the new construction, substantial improvement, or repair of substantial damage
under FEMA programs such as IA, PA, and HMA programs, and grants processed by
FEMA’s GPD. FEMA does not fund repairs or improvements to Federal-aid roads, and
this rulemaking would not be applicable to those roads. Rather, the FHWA regulations
would govern those actions. Where FEMA may provide funding, FEMA’s FFRMS

policy provides details on how FEMA will coordinate with other agencies when
implementing actions in the same area as another Federal agency. See FFRMS policy
Section H, page 9. When coordinating with other Federal agencies, FEMA generally
defaults to the FFRMS policy approach in FEMA's FFRMS policy, as appropriate.
Where FEMA provides funding for these activities, FFRMS applies to improve resilience
to facilities against both current and future flood risks.
In the FFRMS policy, FEMA addresses both structures and facilities and how the
agency will apply FFRMS to each. See section G of the FFRMS policy for more
guidance on facilities. Note FEMA edited the FFRMS policy accompanying this final
rule to further clarify that section G.2 applies to “facilities,” by using the term “Facilities”
instead of the term “Non-Structure Facilities.”
Further, § 9.11(d)(6) states when FEMA is providing funding, a more restrictive
Federal, State, or local floodplain management standard will be applied. Section G.2 of
FEMA’s FFRMS policy further discusses flood risk minimization for facilities and
clarifies that FEMA would also allow methods other than elevation to be used to improve
resilience against flooding up to the flood elevation of the FFRMS floodplain in
conjunction with any other applicable codes and standards.137
FEMA’s FFRMS policy uses the FFRMS flood elevation and corresponding
floodplain to establish the minimum level to which a structure or facility must be
resilient. The minimization requirements are similar to how FEMA currently implements
part 9 for the 1 percent and 0.2 percent annual chance floods. For facility projects that
are subject to the FFRMS, the FFRMS flood elevation represents the magnitude of
flooding that must be considered in incorporating flood resilient design features into

See FFRMS Policy, pg. 8, “Particularly in cases where elevation may not be feasible or appropriate for
non-structure facilities, the FFRMS floodplain, determined according to the process described in section C
of this policy, establishes the level to which a structure or facility must be resilient. Resilience measures
include using structural or nonstructural methods to reduce or prevent damage; elevating a structure; or,
where appropriate, designing it to adapt to, withstand and rapidly recover from a flood event.”
facility project designs. This approach allows the FFRMS to be integrated as one
element of project-specific comprehensive design methods and leaves open the
possibility of more prescriptive design requirements as infrastructure design methods
improve, better incorporating consideration of continually changing hazard conditions.
Further, as explained above, FEMA already incorporates FHWA Hydraulic Engineering
Circulars 17 and 25 (Highways in the River Environment and Highways in the Coastal
Environment) into its Public Assistance grant requirements.
To address the commenter’s concerns regarding overly conservative methods,
FEMA notes the FFRMS is a flexible framework to define the floodplain that allows
agencies to choose among several approaches to expand the base floodplain to a higher
vertical elevation and corresponding horizontal extent for all Federally funded projects.
FEMA’s FFRMS policy is not a one-size-fits-all approach. Rather, FEMA’s policy
approach is flexible to address criticality of the action being taken, data availability based
on the location of the action, and equity concerns.
Finally, the final rule does not change many of the current requirements for
proposed actions. Proposed actions involving roadways, bridges, and culverts located in
or impacting floodplains and wetlands continue to be subject to alternatives analysis
under Executive Order 11988, as amended, and part 9. For certain small-scale actions
under FEMA’s PA program, the proposed rule increases the dollar value thresholds for
projects that are exempt from the 8-step process or that are subject to an abbreviated 8step review.
Comment: The same commenter stated that enhancing resilience should be the
responsibility of the States to enable community-specific strategies. The commenter
requested clarification on whether States and localities could use Federal funds for
resilience measures, such as raising or widening roadways and bridges to meet the
increased vertical elevation and expanded horizontal floodplain while still qualifying for

FEMA funding. The commenter further stated the FFRMS would remove risk to
structures from risk-based design criteria some States had in place and would require a
one-size-fits-all approach for bridge-sized structures. The commenter also noted some
non-Federal partners might not allow States to select the FFRMS approach. The same
commenter stated the FFRMS approaches added an unnecessary factor of safety for
proposed actions, as many States would replace a structure multiple times before the
CISA floodplains would take place. The commenter stated it was impossible to
accurately predict change over long periods of time due to the nature of these systems.
FEMA Response: FEMA agrees that States and localities should lead their own
efforts to enhance resilience. FFRMS is required for Federal actions that are subject to
the FFRMS to protect against current and future flood risks and help ensure that
Federally-funded projects last as long as intended. FEMA’s FFRMS policy is not a onesize-fits-all approach. Rather, FEMA’s policy approach is flexible to address criticality
of the action being taken, data availability based on the location of the action, and equity
concerns. Risk is an inherent factor in applying all of the FFRMS approaches. FEMA
considers the criticality of the action in determining the level of risk that must be
considered in minimizing flood hazards. Critical actions are those actions for which even
a slight chance of flooding is too great and would be protected to a higher level under the
FFRMS.
FEMA explained above the applicability of the FFRMS and the 8-step process
generally to facilities. As noted above, part 9 only applies to FEMA actions. Where
FEMA may provide funding, FEMA’s FFRMS policy provides details on how FEMA
will apply the appropriate FFRMS approach to improve resilience to facilities against
both current and future flood risks.
SLTTs can provide input into the determination. Pursuant to 44 CFR 9.11(d)(6),
a more restrictive Federal, State, or local standard will be used in lieu of the FFRMS.

FEMA values additional input from SLTT partners and the public in the 8-step process.
FEMA notes, where the agency provides funding, any increased costs are generally
eligible for funding under FEMA’s assistance programs subject to cost share
requirements.
Regarding the commenter’s concerns about replacing a facility or structure
several times over a period of time, FEMA’s preferred approach (CISA) incorporates
service life as part of determining the FFRMS floodplain. FEMA understands the
commenter’s concerns and will determine the appropriate service life on a case-by-case
basis for each action. The FFRMS Job Aid provides additional information on service
life and how FEMA will make those individual determinations.138
Comment: The same commenter also wrote by raising the base flood elevation,
the FFRMS would make the floodway obsolete and asked if FEMA would stop using
floodways to regulate construction, and let local governments decide how much
development was acceptable while adhering to the FFRMS. The commenter further
recommended “temporary encroachments,” such as temporary structures required for
bridge construction, be explicitly exempted from the FFRMS.
FEMA Response: FEMA assumes the commenter’s reference to the base flood
elevation is the base flood elevation established and applicable under the NFIP. This
final rule does not raise the base flood elevation under the NFIP. The NFIP is a program
through which property owners in participating communities can purchase Federal flood
insurance as a protection against flood losses.139 As a condition of eligibility, a
community must adopt and enforce floodplain management regulations that incorporate
NFIP minimum floodplain management criteria developed by the Administrator.140
Further information regarding FEMA’s minimum floodplain management standards for

See FFRMS Job Aid, pg. 14.
42 U.S.C. 4011(a).
140 42 U.S.C. 4011(a) and (b); 42 U.S.C. 4102; 44 CFR 59.2(b), 59.22(a)(3), 60.1(d).
138
the NFIP can be found at 44 CFR part 59 et seq. Any update to those standards would
require a rulemaking to revise the appropriate regulatory sections of the CFR. By
contrast, the FFRMS as implemented by this rulemaking, only applies to actions where
FEMA funds are used for new construction, substantial improvement, or repairs to
address substantial damage to structures and facilities.141
As explained above, § 9.4 defines both “floodway” and “regulatory floodway.”
The definition of “floodway” was not changed with this final rule and the definition of
“regulatory floodway” was further clarified by eliminating the reference to a specific
amount set by the NFIP and instead defining the term to mean the area regulated by
Federal, State, or local requirements to provide for the discharge of the base flood so that
the cumulative rise in water surface is no more than a designated amount above the base
flood elevation. These edits more accurately encompass situations where communities
have adopted more restrictive floodway definitions than the minimum specified by the
NFIP. The changes are intended to help stakeholders better understand what a regulatory
floodway is and how it is determined without tying the term to a specific amount that can
change under the NFIP.
Regarding temporary encroachments, § 9.5(c)(1) exempts actions under PA
category B pursuant to section 403 of the Stafford Act. Those actions may include
temporary repairs to structures and facilities. Any temporary work associated with
permanent work, however, is generally included in the 8-step analysis for the permanent
action.

See “Guidelines for Implementing Executive Order 11998, Floodplain Management, and Executive
Order 13690, Establishing a Federal Flood Risk Management Standard and a Process for Further Soliciting
and Considering Stakeholder Input,” 80 FR 64008 (Oct. 22, 2015) (providing notice of the availability of
the Revised Guidelines in the docket for the rulemaking at https://www.regulations.gov/document/FEMA2015-0006-0358 (main content) and https://www.regulations.gov/document/FEMA-2015-0006-0372
(appendices)) also available at https://www.fema.gov/sites/default/files/documents/fema_implementingguidelines-EO11988-13690_10082015.pdf (last accessed Mar. 11, 2024).
Comment: A commenter stated the RIA was limited and inadequate and cited
several examples of where FEMA should improve the RIA. Specifically, the commenter
stated that FEMA attempted to isolate a population of actions where the standards would
be applied, limiting the analysis to structures that will be paid for with Federal funds and
did not capture the costs and benefits of the regulatory alternatives that would be
associated with applying the FFRMS to Federal licenses and permits. The commenter
also stated that FEMA did not consider the impacts of the new standards on the
floodplain regulations mandated for communities that participate in the NFIP and the
economic impacts of applying the new standards to NFIP floodplain mapping and the
accreditation of levees under the NFIP. The commenter further stated accreditation was
mapping and the scope of 44 CFR part 9 included application of the 8-step process to
NFIP mapping.
FEMA Response: FEMA appreciates the commenter’s suggestions regarding the
RIA but believes the commenter’s requests go beyond the scope of this rulemaking.
FEMA disagrees with the commenter that the RIA should capture costs and benefits
associated with Federal licenses and permits. The changes made to part 9 to implement
FFRMS only apply to actions subject to the FFRMS. FEMA defines “action subject to
the FFRMS” as “any action where FEMA funds are used for new construction,
substantial improvement, or to address substantial damage to a structure or facility,”
consistent with Executive Order 11988, as amended, and the Revised Guidelines. The
FFRMS applies to grants for projects funding the new construction, substantial
improvement, or repair of substantial damage under FEMA programs such as IA, PA, and
HMA programs, and grants processed by FEMA’s GPD. Accordingly, the scope of
FEMA’s regulatory impact analysis is limited to the FEMA projects where the FFRMS
standards would be applied.

FEMA further does not believe the agency is required to consider the impacts of
the new standards on the floodplain regulations mandated for communities that
participate in the NFIP and the economic impacts of applying the new standards to NFIP
floodplain mapping and the accreditation of levees under the NFIP. As explained above,
the NFIP is a program through which property owners in participating communities can
purchase Federal flood insurance as a protection against flood losses. As a condition of
eligibility, a community must adopt and enforce floodplain management regulations that
incorporate NFIP minimum floodplain management criteria developed by the
Administrator. Further information regarding FEMA’s minimum floodplain management
standards for the NFIP can be found at 44 CFR part 59 et seq. By contrast, the FFRMS
as implemented by this rulemaking, only applies to actions where FEMA funds are used
for new construction, substantial improvement, or repairs to address substantial damage
to structures and facilities.
G. FFRMS Approaches
1. CISA
Several commenters expressed support for the use of the CISA but sought
additional clarification on implementation of the approach. A few commenters raised
concerns with the use of the CISA.
General Comments
Comment: A commenter stated utilizing the CISA to determine the FFRMS
floodplain where possible was of critical importance as CISA offered a forward-thinking
approach to improve resilient development considering both current and future flood risk.
The commenter noted the necessary data and modeling capabilities underpinning CISA
have continued to expand in recent years, making CISA an increasingly practicable
methodology for more accurately determining the extent of the FFRMS floodplain.

FEMA Response: FEMA agrees with the commenter that since the introduction
of the CISA in 2015, additional data has become available to better inform CISA.142
FEMA believes data availability and actionability will continue to advance for CISA in
the future. Specifically, FEMA expects more data will be developed, supporting broaderbased application of CISA as agencies implement the FFRMS, and this data will be
considered and incorporated into future updates of the FFRMS and FEMA's
implementation thereof. FEMA’s policy approach is to use CISA where available,
recognizing the data is still not available in every location.
Comment: Two commenters wrote the CISA did not promote predictability or
reduce uncertainty as required by Executive Orders 12866 and 13563 and instead left the
public to guess a standard from a range of possible climate scenarios. The commenters
stated questions regarding the flood hazard area and elevation remain unanswered within
the CISA and the approach lacked specific criteria for making those determinations. The
commenters noted FEMA did not propose to require the use of CISA in the agency’s
2016 NPRM because of the lack of available CISA data and stated those concerns still
exist. The commenters further stated that the lack of coherent decision criteria within the
CISA raised concerns about the clarity of Congressional authority guiding the standard.
FEMA Response: FEMA disagrees with the commenters that the CISA results in
uncertainty for the public as the agency provided information on the CISA with the
NPRM. Appendix H of the Revised Guidelines143 provides an overview of the available
and actionable data for CISA, which is the basis for interagency supporting tools to

See “Federal Flood Risk Management Standard Climate-Informed Science Approach (CISA) State of
the Science Report,” available at https://www.whitehouse.gov/wp-content/uploads/2023/03/Federal-FloodRisk-Management-Standard-Climate-Informed-Science-Approach-CISA-State-of-the-ScienceReport.pdf?trk=public_post_comment-text (last accessed Jan. 24, 2024), https://www.fema.gov/floodplainmanagement/intergovernmental/white-house-flood-resilience-interagency-working-group (last accessed
Jan. 24, 2024), and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0007.
143 Available at https://www.fema.gov/sites/default/files/documents/fema_implementing-guidelinesEO11988-13690_10082015.pdf (last accessed Jan. 24, 2024).
implement the FFRMS. As explained above, the Science Subgroup convened by the
Flood Resilience Interagency Working Group (IWG) of the National Climate Task Force
published the FFRMS CISA State of the Science Report.144 The FFRMS CISA State of
the Science Report refines the initial framework from Appendix H and specifically
identifies the latest sea level rise projections from the National Climate Assessment as
actionable, stating that each agency should factor projected regional/local sea level
change into Federal investment decisions located as far inland as the extent of estimated
tidal influence, now and in the future, using the most appropriate methods for the scale
and consequence of the decision.145 This report is the basis of the interagency
implementation and supporting tools such as the FFRMS Job Aid.146 FEMA is relying on
these interagency processes to select and evaluate the data and methods used. FEMA
published the FFRMS Job Aid and the FFRMS CISA State of the Science Report in the
public docket associated with this rulemaking.147 FEMA also posted the FFRMS Job Aid
on its website148 and currently plans to use the methodology found in the FFRMS Job Aid
to determine the FFRMS floodplain as explained above.
FEMA believes the policy approach detailed in the agency’s FFRMS Policy is
sufficiently certain for FFRMS implementation. As detailed in the FFRMS Policy,
FEMA will use the CISA when such data is available and actionable as further explained
in Appendix H of the Revised Guidelines149 and refined in the FFRMS CISA State of the

Available at https://www.whitehouse.gov/wp-content/uploads/2023/03/Federal-Flood-RiskManagement-Standard-Climate-Informed-Science-Approach-CISA-State-of-the-ScienceReport.pdf?trk=public_post_comment-text (last accessed Jan. 24, 2024), https://www.fema.gov/floodplainmanagement/intergovernmental/white-house-flood-resilience-interagency-working-group (last accessed
Jan. 24, 2024), and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0007.
145 FFRMS CISA State of the Science Report, pg. 23.
146 See https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-jobaid.pdf (last accessed Jan. 24, 2024) and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0004.
147 See https://www.regulations.gov/document/FEMA-2023-0026-0004.
148 See https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-jobaid.pdf (last accessed Jan. 24, 2024).
149 Revised Guidelines, pgs. 16-17 and 50-52.
Science Report.150 Where the CISA data is not available and/or actionable, the agency
will use either the FVA or 0.2PFA depending on the criticality of the action and data
availability. Consistent with the information in the FFRMS CISA State of the Science
Report regarding data availability/actionability,151 FEMA will initially rely on the
methodology from the FFRMS Job Aid152 to make the CISA, FVA, and 0.2PFA
determinations.
FEMA understands data availability and actionability is a key factor in
completing this analysis in a consistent, equitable manner. As stated above, since the
introduction of the CISA in 2015, additional data has become available to better inform
CISA.153 FEMA believes data availability and actionability will continue to advance for
CISA in the future. However, as actionable climate data are currently only available
along low-lying coastal shorelines on the Atlantic and Gulf Coasts not subject to runup or
overtopping pursuant to the FFRMS CISA State of the Science Report,154 FEMA is
proposing the FVA and 0.2PFA alternatives in the absence of actionable CISA data.
FEMA notes, consistent with current practice, the agency will continue make the
floodplain determinations as part of the action taken, reducing the burden on applicants in
the process. FEMA estimated the cost for determining the appropriate FFRMS
floodplain in the Administrative Cost section within the RIA.
CISA Implementation
Commenters inquired as to how FEMA would implement CISA as part of the
agency’s FFRMS implementation.
FFRMS CISA State of the Science Report, pgs. 7-8.
Id.
152 FFRMS Job Aid, pgs. 7-11 generally.
153 See “Federal Flood Risk Management Standard Climate-Informed Science Approach (CISA) State of
the Science Report,” available at https://www.whitehouse.gov/wp-content/uploads/2023/03/Federal-FloodRisk-Management-Standard-Climate-Informed-Science-Approach-CISA-State-of-the-ScienceReport.pdf?trk=public_post_comment-text (last accessed Jan. 24, 2024), https://www.fema.gov/floodplainmanagement/intergovernmental/white-house-flood-resilience-interagency-working-group (last accessed
Jan. 24, 2024), and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0007.
154 FFRMS CISA State of the Science Report, pgs. 22-23 and 28.
150
Comment: A commenter requested FEMA amend § 9.7(c)(i)(A) to require an
assumption that “climate impacts would be more rather than less severe under conditions
of uncertainty.”
FEMA Response: FEMA is not codifying the specific climate scenarios to be
used as part of the CISA analysis. As previously explained, FEMA is relying on
interagency tools to determine CISA flood elevations and corresponding horizontal
floodplains. FEMA will initially implement this final rule using the FFRMS Job Aid that
was published in the public docket associated with this rulemaking along with the
proposed rule. The FFRMS Job Aid is also on FEMA’s website.155
Comments: One commenter characterized CISA as a framework built upon
continually evolving models, projections, and assumptions regarding climate change and
anticipated future conditions. The commenter stated the decision criteria under the CISA
approach was not adequately defined in the rule and the information provided about
CISA in the rule regarding the best available information remained unspecified, raising
concerns about project implementation and general uncertainty. Another commenter
recommended that FEMA make clear its ability to update how it implements the FFRMS
approaches as necessary according to the latest climate science, rather than going through
a rulemaking process for each successive update. The commenter stated that the CISA
State of the Science Report provided robust information on CISA implementation but
because of its length was not necessarily an easily accessible reference document. The
commenter recommended providing succinct and practical guidance on CISA to facilitate
implementation of the approach. The comment suggested that such guidance could
including a representative list of acceptable data sources and guidance on how to interpret

See https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-jobaid.pdf (last accessed Jan. 24, 2024) and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0004.
and apply these sources (for instance, how to choose an appropriate timeline or planning
scenario).
FEMA Response: FEMA’s explanation of the CISA is consistent with Executive
Order 11988, as amended, and the Revised Guidelines. FEMA has not provided specific
definitions of each approach under FFRMS but rather describes each in § 9.7 and also in
the FFRMS policy. FEMA believes these explanations are sufficiently clear and will not
result in ambiguity or misunderstanding because they are consistent with the Executive
Order and Revised Guidelines.
FEMA further believes the information provided is consistent with Executive
Order 11988, as amended; the Revised Guidelines; and the CISA State of the Science
report. The information is also sufficient to implement FFRMS and CISA. FEMA will
rely on 44 CFR 9.7, FEMA Policy 104-008-2: Guidance on the Use of Available Flood
Hazard Information,156 the Revised Guidelines, and the FFRMS CISA State of the
Science Report in determining whether CISA and flood hazard data is available and
actionable. The FFRMS CISA State of the Science Report157 is the basis of the
interagency implementation and supporting tools such as the FFRMS Job Aid.158 FEMA
published the FFRMS Job Aid and the FFRMS CISA State of the Science Report in the
public docket associated with this rulemaking.159 FEMA also posted the FFRMS Job Aid
on its website.160

Available at https://www.fema.gov/sites/default/files/202004/Available_Flood_Hazard_Information_Policy_104-008-2.pdf (last accessed Mar. 12, 2024). The
FFRMS proposed and final policies reference this existing FEMA policy in Section D.1.
157 Available at https://www.whitehouse.gov/wp-content/uploads/2023/03/Federal-Flood-RiskManagement-Standard-Climate-Informed-Science-Approach-CISA-State-of-the-ScienceReport.pdf?trk=public_post_comment-text (last accessed Jan. 24, 2024), https://www.fema.gov/floodplainmanagement/intergovernmental/white-house-flood-resilience-interagency-working-group (last accessed
Jan. 24, 2024), and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0007.
158 See https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-jobaid.pdf (last accessed Jan. 24, 2024) and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0004.
159 See https://www.regulations.gov/document/FEMA-2023-0026-0004.
160 See https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-jobaid.pdf (last accessed Jan. 24, 2024).
FEMA intends to leverage the FFRMS Job Aid when implementing FFRMS.
FEMA will initially rely on the methodology found in the FFRMS Job Aid for
determining the FFRMS floodplain and, as explained elsewhere in our responses, will
accept higher standards provided by other Federal, State, or local entities in accordance
with 44 CFR 9.11(d)(6) so long as it is as least as restrictive as FEMA’s FFRMS
floodplain determination and adopted by the community for use, including where
communities have adopted local CISA. FEMA will continue to collaborate across the
Federal government to develop tools to facilitate the implementation of CISA and the
FFRMS. The IWG recently released a beta version of the Federal Flood Standard
Support Tool (FFSST), a novel interactive, map-based tool that incorporates new data to
help users identify if a Federally funded project is in the FFRMS floodplain, for
comment.161 FEMA intends to provide additional resources to assist stakeholders as
FFRMS is implemented.
Consistent with Executive Order 11988, as amended, and the Revised Guidelines,
CISA requirements will change as the available and actionable data change. The MitFLG
in consultation with the Federal Interagency Floodplain Management Task Force (FIFMTF) will reassess FFRMS annually, after seeking stakeholder input, and provide
recommendations to the WRC to update FFRMS, including the FVA, if warranted based
on accurate and actionable science that takes into account changes to climate and other
changes in flood risk. The WRC shall issue an update to FFRMS at least every 5
years.162
Comments: Three commenters requested that FEMA clarify how it will
determine that CISA data are available and actionable when determining the FFRMS
floodplain. One of the commenters asked whether CISA data availability was dependent

161
89 FR 25674 (Apr. 11, 2024).
Section 4, Executive Order 13690, 80 FR 6425 (Feb. 4, 2015).

on FEMA mapping using CISA data. Another commenter requested clarity on how
CISA would be assessed. The commenter noted the CISA data must be “existing” and
both “available” and “actionable,” and stated this implied that entities proposing a project
were only obligated to rely on information that was already existing, available, and
actionable, which was inconsistent with the rest of the rule that focused on creating
project-specific assessments.
FEMA Response: Data availability is not dependent on the development of
FEMA regulatory mapping products (such as effective Flood Insurance Rate Maps
[FIRMs]) utilizing CISA data. The Revised Guidelines require agencies to utilize the
“best available and actionable science.” The Revised Guidelines state that in this context,
“best-available” generally refers to science, data or information that is:
•

Transparent – clearly outlines assumptions, applications, and limitations;

•

Technically credible – transparent subject matter or more formal external peer
review, as appropriate, of processes and source data;

•

Usable – relevance and accessibility of the information to its intended users;

•

Legitimate – perceived by stakeholders to conform to recognized principles,
rules, or standards. Legitimacy might be achieved by existing government
planning processes with the opportunity for public comment and
engagement.163

The Revised Guidelines further state that actionable science includes theories, data,
analyses, models, projections, scenarios and tools that are:
•

Relevant to the decision under consideration;

•

Reliable in terms of its scientific or engineering basis and appropriate level of
peer review;

•
Understandable to those making the decision;

See Revised Guidelines at pgs. 16-17.

•

Supportive of decisions across wide spatial, temporal, and organizational
ranges, including those of time-sensitive operational and capital investment
decision-making;

•

Co-produced by scientists, practitioners, and decision-makers, and meet the
needs of and are readily accessible by stakeholders.

These concepts of best-available and actionable science are further described in Part II,
Step 1 of the Revised Guidelines, in the context of the various approaches for
determining a floodplain and in Appendix H of the Revised Guidelines specifically as it
relates to the CISA.164
As previously explained, the FFRMS CISA State of the Science Report165
contains an up-to-date review and update of the best-available, actionable science that
can support application of the CISA, and is the basis of the interagency implementation
and supporting tools such as the FFRMS Job Aid.166 FEMA will initially rely on the
methodology in the FFRMS Job Aid to determine the FFRMS floodplain when
implementing this final rule.
FEMA disagrees with the commenter that requiring CISA data be available and
actionable is inconsistent with the rest of the rule. The 8-step process is action-specific,
and the floodplain determination is made based on the location of the action, but the data
to determine the floodplain at that location must be available and actionable for CISA to
be utilized. FEMA’s FFRMS policy further defines where CISA is applicable.

See Revised Guidelines at pgs. 16-17.
Available at https://www.whitehouse.gov/wp-content/uploads/2023/03/Federal-Flood-RiskManagement-Standard-Climate-Informed-Science-Approach-CISA-State-of-the-ScienceReport.pdf?trk=public_post_comment-text (last accessed Jan. 24, 2024), https://www.fema.gov/floodplainmanagement/intergovernmental/white-house-flood-resilience-interagency-working-group (last accessed
Jan. 24, 2024), and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0007.
166 See https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-jobaid.pdf (last accessed Jan. 24, 2024) and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0004.
164
Comments: FEMA received comments regarding the service life of proposed
actions and how the agency would calculate the service life of actions. One commenter
suggested FEMA provide guidelines on how to determine an appropriate period. Another
commenter noted FEMA used a default 50-year lifecycle analysis that would not be
appropriate for all actions and requested FEMA provide information on how the 50-year
lifecycle timeline was determined, as well as guidelines on how to determine the
appropriate lifecycle on a case-by-case basis.
FEMA Response: FEMA’s analysis of the rule’s benefits relied upon a report
defaulting to a 25-year and 50-year lifecycle for all actions. However, when making
floodplain determinations, FEMA intends to determine the appropriate service life on a
case-by-case basis for each action. This will ensure that FEMA evaluates floodplain
hazards over the appropriate lifecycle for each action. The FFRMS Job Aid provides
additional information on service life and how FEMA will make those individual
determinations.167
FEMA’s RIA used the 2022 report titled “A Benefits Analysis of Increased
Freeboard for Public and Nonresidential Buildings in Riverine and Coastal Floodplains,”
(“2022 report”) in its analysis of benefits. The 2022 report calculated benefits for
increased freeboard over 25-year and 50-year useful lives under a variety of climate
change scenarios.168 FEMA’s analysis considered the benefits of the rule assuming a 50year useful life.
Comment: A commenter stated some states, such as California, had guidelines on
sea level rise and those guidelines were inconsistent with the CISA +5 feet option
discussed in the rule’s regulatory impact analysis. The commenter stated such an
elevation requirement would be overbuilt per those State guidelines. The commenter

See FFRMS Job Aid, pg. 14.
The FEMA BCA Toolkit recommends using a 50-year project useful lift for public buildings and a 25year project useful life for nonresidential buildings.
167
stated that CISA would be overly conservative for many locations, because of what the
commenter characterized as CISA’s one-size-fits-all approach.
FEMA Response: FEMA’s regulatory impact analysis utilizes an assumption of
+5 feet for CISA as an analysis point. The +5 feet is an assumption because FEMA does
not currently have detailed enough data to estimate the average CISA level within the
United States based on currently available CISA data and the additional CISA data that
will continue to become available over time. However, CISA is not a one-size-fits-all
approach. FEMA notes the FFRMS Floodplain Determination Job Aid indicates the
CISA method is recommended for actions along low-lying coastal shorelines on the
Atlantic and Gulf Coasts. For Pacific coasts and other coasts with bluffs, FEMA may
initially use the FVA approach.
SLTTs can provide input into the determination. Pursuant to 44 CFR 9.11(d)(6),
a more restrictive Federal, State, or local standard will be used, including local CISA data
and methods that have been adopted by a community for use in floodplain management,
as long as such data result in a more restrictive standard.
FEMA’s FFRMS policy is not a one-size-fits-all approach; rather, the agency’s
policy approach is flexible to address criticality of the action being taken, data
availability based on the location of the action, and equity concerns. FEMA is not
codifying the specific climate scenarios to be used as part of the CISA analysis. As
previously explained, FEMA is relying on interagency tools to determine CISA flood
elevations and corresponding horizontal floodplains. FEMA will initially implement this
final rule using the FFRMS Job Aid that published in the public docket associated with
this rulemaking along with the proposed rule. The FFRMS Job Aid is also on FEMA’s
website.169

See https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-jobaid.pdf (last accessed Jan. 24, 2024) and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0004.
Comment: The same commenter stated that when designing bridges and
embankments, the CISA approach considers impacts from projected land cover/land use
changes, long-term erosion, and other processes that may alter flood hazards over the
lifecycle of the Federal investment. The commenter asked how the estimates for longterm erosion and scour would be determined. This commenter further stated the
outcomes from these estimates were subject to uncertainty, resulting in overdesign and
greatly reducing the likelihood of the CISA data actually occurring.
FEMA Response: FEMA’s FFRMS policy provides details on how FEMA will
implement FFRMS for facilities. This analysis is completed on a case-by-case basis and
may require the services of a professional engineer, as appropriate, consistent with
FEMA program requirements. More information on consideration of flood
characteristics such as erosion and scour can be found in the Revised Guidelines.170
Whether CISA data are available and/or actionable will depend in part upon the
location of the action being taken. FEMA believes the policy approach detailed in the
agency’s FFRMS policy is sufficiently certain for FFRMS implementation. As detailed
in the FFRMS policy, FEMA will use the CISA where such data is available and
actionable. FEMA is relying on interagency tools to determine CISA flood elevations
and corresponding horizontal floodplains. Where the CISA data are not available and
actionable, the agency will leverage either the FVA or 0.2PFA depending on the
criticality of the action and data availability. Where the CISA data are available and
actionable, the CISA floodplain must be at least as restrictive as the 1 percent annual
chance flood elevation or 0.2PFA, again depending on the criticality of the action. In this
way, FEMA has addressed equity concerns in the policy approach, specifically to
mitigate the likelihood of over- and under-building. FEMA believes that allowing for a

See Revised Guidelines pg. 23 for information on flooding characteristics and Appendix H of the
Revised Guidelines for information on the CISA, pgs. 20-22.
lower standard for non-critical actions helps address concerns related to overbuilding.
Selecting the lower approach for non-critical actions will still result in a higher level of
resilience than the current requirements under part 9 while also taking equity and costeffectiveness considerations into account.
CISA Applicability
Comment: A commenter requested FEMA apply the CISA to all of the agency’s
mapping and map revision processes. The commentor wrote that letters of map
amendment (LOMAs) and letters of map revision-based on fill (LOMR-Fs) essentially
allowed FEMA to piecemeal exempt properties and stated the combination of Executive
Orders and statutes required FEMA to build a robust and well-informed mapping
program to guide development away from floodplains. The commenter stated the
exclusion of LOMAs and LOMR-Fs from FFRMS created an exception that would
swallow the rule.
FEMA Response: FEMA appreciates the commenter’s support of the CISA and
understands the commenter’s concerns regarding LOMAs and LOMR-Fs. FEMA is not
making changes to the agency’s NFIP mapping process with this rulemaking or
accompany FFRMS policy. The NFIP’s regulations on mapping and changes to FEMA
maps are found at 44 CFR part 70 et seq. Further, the proposed changes to part 9 do not
affect implementation of the NFIP’s floodplain management regulations. Those
regulations are found at 44 CFR part 59 et seq. The framework that FEMA uses in part 9,
including the revised definition of floodplain applicable to actions subject to the FFRMS
under this rule, is distinct from NFIP mapping. FEMA believes that the flexibility
outlined in 44 CFR 9.7 and the practice of best available information will allow the
application of part 9 to adjust to any future change made in the NFIP mapping process.
CISA and Equity Considerations

Comment: A commenter requested FEMA consider inequities in access to the
best available climate science as some communities may not have access to the CISA
data. The commenter acknowledged FEMA’s proposed alternatives to the CISA but
requested the agency consider how this rule would unintentionally exacerbate inequities
in flood preparedness and safety across the country and how FEMA would distribute
Federal funding and other financial assistance to address these discrepancies.
FEMA Response: FEMA’s revisions to part 9 reflect consideration of the type
and criticality of the action involved, the availability and actionability of the data, and
equity concerns in the implementation of Executive Order 11988, as amended. FEMA
also has an agency-wide initiative focused on reducing barriers and increasing
opportunities so all people, including those from vulnerable and underserved
communities, can get help when they need it.171 FEMA notes any increased costs are
generally eligible for funding under FEMA’s assistance programs subject to cost share
requirements.
As part of the implementation cost, FEMA will publicize the FFRMS to public
and SLTT partners, identifying what the FFRMS is and how the agency will implement
the Executive Order as amended and part 9. These resources will help applicants
applying for FEMA-funded assistance programs. FEMA’s regional offices will also
provide technical assistance in support of FFRMS implementation.
As climate science data continues to be advanced, FEMA will continue to rely on
44 CFR 9.7, FEMA Policy 104-008-2: Guidance on the Use of Available Flood Hazard
Information,172 and the Revised Guidelines in determining whether CISA and flood
hazard data is available and actionable. Appendix H of the Revised Guidelines and the
CISA FFRMS State of the Science Report provide an overview of the available and
See https://www.fema.gov/emergency-managers/national-preparedness/equity (last accessed Jan. 24,
2024).
172 Available at https://www.fema.gov/sites/default/files/202004/Available_Flood_Hazard_Information_Policy_104-008-2.pdf (last accessed Mar. 12, 2024).
actionable data for CISA, which is the basis for these interagency supporting tools. The
Revised Guidelines also provide an explanation of how the FFRMS will be updated in the
future. Additionally, where a community does have access to CISA data and has adopted
its use for floodplain management, that data will be used pursuant to 44 CFR 9.11(d)(6),
as long as it results in a more restrictive standard. In this way the unique considerations
of a particular community are also taken into account.
2. FVA
Comment: A commenter stated FEMA should be prepared to reassess the use of 2
and 3 feet of freeboard in the FVA according to the latest climate science. The
commenter requested the FFRMS should explicitly allow this type of reassessment to
take place without rulemaking.
FEMA Response: The FVA is an alternative approach to the CISA under the
FFRMS. FEMA cannot independently revise the FFRMS. The MitFLG in consultation
with the FIFM-TF will reassess the FFRMS annually, after seeking stakeholder input, and
provide recommendations to the WRC to update the FFRMS, including the FVA, if
warranted based on accurate and actionable science that takes into account changes to
climate and other changes in flood risk. The WRC shall issue an update to the FFRMS at
least every 5 years.173
FEMA appreciates the intent behind the comment, namely that the agency should
implement the FFRMS in a way that allows for reassessments that account for changes in
climate science. FEMA has ensured that its implementation of the FFRMS will allow for
such updates. Specifically, in this final rule, FEMA will implement the FFRMS by
adopting the flexible framework identified in Executive Order 11988, as amended by
Executive Order 13690, in its entirety, instead of mandating a particular approach in its
regulations and will provide additional guidance (more readily capable of revisions and

Section 4, Executive Order 13690, 80 FR 6425 (Feb. 4, 2015).

updates) that addresses which approach FEMA would generally use for different types of
actions. Consistent with Executive Order 11988, as amended, and the Revised
Guidelines, the CISA requirements will change as the available and actionable data
change and FEMA will similarly update its guidance, as appropriate, to account for such
changes.
3. 0.2PFA
Comments: Commenters asked questions about the 0.2PFA and how FEMA
would implement the approach. A commenter expressed support for the use of the
0.2PFA as an effective alternative to the CISA while technology and capabilities to
implement CISA are scaling to a nationwide level. At the same time, the commenter
recommended that FEMA allow for the flexibility to use the most protective and up-todate science in coastal regions or where higher quality data and analytics are available.
The same commenter wrote that FEMA should continue educating the public regarding
flood risk from flood events that could affect areas beyond the 0.2 percent annual chance
floodplains. The commenter stated that during the past two decades, many storm events
of a magnitude greater than a 0.2PFA event have occurred, such as the 2010 Nashville
flood and the 2017 inland flood induced by Hurricane Harvey. The commenter stated
that while reliance on the 0.2PFA would significantly reduce flood risk in comparison to
reliance upon the 1 percent annual chance floodplain, FEMA should not be satisfied that
this would be sufficient. The commenter also requested FEMA include land surface
flooding. The commenter also recommended the flood mitigation standard for critical
infrastructure (such as subway systems, metropolitan wastewater treatment facilities, and
others) be different and higher than those for non-critical. Another commenter requested
FEMA account for the area of elevation that was above or below sea level to plan for
implementation of the 0.2PFA.

FEMA Response: FEMA’s policy approach provides flexibility. As explained in
the FFRMS policy, FEMA will use the CISA to determine the floodplain where that data
is available and actionable. Where the CISA data is not available or actionable, FEMA
will utilize either the FVA or 0.2PFA depending on the criticality of the action and data
availability. FEMA notes there is no requirement in the FFRMS or the Revised
Guidelines to select the higher approach when not using the CISA, as FFRMS is a
resilience standard. “When an agency is not using the Climate-informed Science
Approach in riverine flood hazard areas, the agency may select either the Freeboard
Value Approach or the 0.2-percent-annual chance elevation, as appropriate, and is not
required to use the higher of the two.”174
FEMA will continue to rely on 44 CFR 9.7, FEMA Policy 104-008-2: Guidance
on the Use of Available Flood Hazard Information,175 and the Revised Guidelines in
determining whether CISA and flood hazard data is available and actionable. FEMA will
use the best available information in making the floodplain determination under part 9,
and the best available information may include information that is non-regulatory or
FEMA preliminary flood hazard data. To be designated as the best available information,
it must be at least as restrictive as information provided by effective FIRMs. Pursuant to
44 CFR 9.11(d)(6), a more restrictive Federal, State, or local standard will be used and
this includes the use of local CISA data and methods that have been adopted by a
community for use in floodplain management, as long as such data results in a more
restrictive standard.
To clarify, FEMA is not relying on the 1 percent annual chance floodplain in the
FFRMS approaches. Rather, FEMA is relying on the CISA, FVA, or 0.2PFA. FEMA’s
FFRMS policy clarifies the agency will use the higher of the FVA or 0.2PFA for critical

See Revised Guidelines, pg. 57.
Available at https://www.fema.gov/sites/default/files/202004/Available_Flood_Hazard_Information_Policy_104-008-2.pdf (last accessed Mar. 12, 2024).
174
actions when CISA data is not available or actionable. FEMA will continue to utilize the
1 percent annual chance floodplain under part 9 only for those actions that are not subject
to the FFRMS and are considered non-critical actions.
FEMA has considered and will continue to consider flooding characteristics such
as land surface flooding consistent with § 9.7. FEMA’s FFRMS policy also emphasizes
whether the action is a critical action as one of the factors to consider when conducting
the analysis as to the approach to utilize when CISA data is not available or actionable.
Regarding the commenter’s concerns about elevation, the interagency tools
FEMA will use to determine the 0.2PFA, as well as CISA and FVA, will account for
ground elevation.
Comment: One commenter wrote only 20 percent of the country had detailed
horizontal floodplain boundaries of the 0.2 percent annual chance floodplain and that the
elevation determination was also important given that some flood depths could be lower
in the 0.2 annual chance floodplain than in the 1 percent annual chance floodplain. A
commenter stated the lack of comprehensive elevation information for the 0.2PFA would
cause confusion among stakeholders and applying FFRMS without accounting for
distinct elevation profiles undermined the practicality and success of the policy. Another
commenter supported utilizing the 0.2PFA and FVA when the CISA data was not
available and not actionable. The commenter noted wave modeling should be included
when applying the 0.2PFA and FEMA had not regularly produced maps that incorporate
wave modeling. The commenter requested FEMA regularly include wave modeling in its
0.2 percent annual chance flood maps.
FEMA Response: As explained above, FEMA’s FFRMS policy identifies data
availability as a factor in determining the FFRMS approach to be used for a specific
action. FEMA recognizes data availability of the 0.2 percent annual chance floodplain,
as well as technical considerations relating to how wave action may be incorporated, can

be challenges in implementing the 0.2PFA. In coastal areas, the Revised Guidelines note
Federal agencies should use the FVA as the minimum elevation when not using the CISA
if the 0.2 percent annual chance flood information depicted on FEMA's regulatory
products considers storm-surge hazards but not wave action, and wave action data cannot
be obtained from other sources.
As the commenter notes, when the CISA is not available and the 0.2PFA is used
in coastal areas, the 0.2PFA should consider wave action. As the Revised Guidelines
state, before using the 0.2PFA in that situation, an analysis should be conducted of
coastal flood hazards at the site that incorporates the local effects of wave action, scour
and erosion, wave run-up, and overtopping.176 In some instances, the FEMA 0.2 percent
annual chance flood elevation, which does not consider wave action, will be lower than
the current BFE or the FVA. As noted in the Executive Summary of this preamble,
FEMA edited the agency’s proposed FFRMS policy to clarify that FIRMs and Federal
Insurance Studies (FIS) provide 1 percent annual chance flood elevations including wave
action in coastal areas; however, the 0.2 percent annual chance flood elevations generally
are stillwater elevations that do not account for the effects of wave action. To emphasize
the importance of this for non-critical actions in particular, the FFRMS policy wording
has been clarified and relocated to Section C.3.a, stating that when the lower of the
0.2PFA or FVA is used, the FVA flood elevation must be used in those instances where
the 0.2-percent-annual-chance flood elevation does not account for the effects of wave
action. 177 For critical actions, the policy approach is to use the higher of the FVA or
0.2PFA, which would avoid relying on 0.2PFA in situations where the 0.2PFA elevations
would be lower.
4. Fourth Approach

176
See Revised Guidelines, pg. 57.
See section C.3.a note 13, pg. 4.

Comment: A commenter stated the fourth approach listed in the rule was a
“hedge” and resulted in inexcusable operational uncertainty to the FFRMS. The
commenter stated the public would struggle to understand the appropriate standard on an
annual basis given this approach. Another commenter stated the fourth approach was a
“safety net” and consistent with the other commenter, stated the approach amplified
operational uncertainty within FFRMS rather than addressing it.
FEMA Response: FEMA disagrees that the fourth approach in the regulation
provides additional uncertainty for the public. This approach is provided in the Revised
Guidelines, and FEMA would provide notice to the public of any such approach and the
adoption of that approach consistent with Executive Order 11988, as amended.
5. Alternatives to FFRMS Approaches
Comment: One commenter suggested that cost-benefit analysis could serve as an
alternative to using the FFRMS approaches. The commenter stated cost-benefit analysis
informed by risk could be scaled to the circumstances of decisions and would achieve
better results than applying error-prone arbitrary standards. The commenter stated that
benefits and costs can be broadly conceived to include more than values reflected in
market transactions. The commenter wrote that FEMA applied cost-benefit analysis in a
partial way to its hazard mitigation program only and asked how not leveraging a costbenefit analysis but instead applying the FFRMS approaches would result in net Federal
resource savings.
FEMA Response: As an initial matter, FEMA notes that establishing the
floodplain for each project on the basis of individualized cost-benefit assessments would
potentially be inconsistent with the commenter’s stated preference for predictability and
reduced uncertainty (as reflected in the commenter’s objection to the CISA standard).
For instance, the commenter’s proposal could require individualized flood risk
assessments that would make it challenging for private parties to predict the applicable

floodplain prior to engaging with FEMA. In addition, in at least some cases, the
commenter’s proposed approach would call for consideration of relevant data and science
in order to understand the potential costs and benefits of building to different levels of
resilience. Although as reflected throughout this response and preamble, FEMA shares
the commenter’s sensitivity to cost and preference to limit unnecessary expenditures to
the extent possible, FEMA does not believe that the approach suggested by the
commenter is necessarily more likely to be predictable or administrable, or to maximize
net benefits.
While not all of FEMA’s programs are statutorily required to be cost-effective,
FEMA has consistently leveraged cost-benefit analysis and will continue to do so along
with minimum standards for floodplain management across the agency’s programs to
provide for Federally funded projects that are both cost-effective and result in more
resilient communities.
In its NPRM and proposed policy, FEMA explained how the agency considered
cost along with data availability, criticality of the action, and equity in establishing a
flexible framework for FFRMS implementation. Consistent with the Revised Guidelines,
FEMA’s preferred approach is the CISA, but the FFRMS policy explains the CISA must
be available and actionable and where it is not, the FVA or 0.2PFA will be utilized
depending on the criticality of the action and availability of data.
FEMA believes the benefits of preventing property damage and potentially saving
lives justify the costs of the rule. These benefits are a result of the improved protection of
structures due to increased elevation and floodproofing standards in FEMA’s
implementation of the FFRMS. This rule will help to ensure that Federal investments are
better protected from flood damage, and the natural values of floodplains are
preserved. If, in the future, the commenter were to identify a specific cost-benefit

methodology that warranted adoption via the process outlined in the Executive Order,
FEMA could in principle pursue such an option.
Comments: Some commenters recommended FEMA adopt specific building
codes and design standards as part of this rulemaking. One commenter stated FEMA’s
rule was consistent with ASCE Policy Statement 421. The commenter recommended
FEMA adopt both the current 2022 edition of ASCE 7 as well as Supplement #1 and
Supplement #2 for the Flood Chapter, and the upcoming revision to ASCE 24. Another
commenter recommended FEMA require up-to-date editions of the International
Residential Code (IRC) and International Building Code (IBC) to ensure the FFRMS
incorporates the most stringent flood provisions for Federally assisted construction in
flood zones. Another commenter also recommended FEMA specifically adopt a
reference to the ANSI/FM Approvals 2510 standard for floodproofing/flood mitigation
products, similar to the U.S. Department of Housing and Urban Development (HUD)’s
proposal to allow floodproofing of non-residential areas below the FFRMS floodplain
elevation in their NPRM.
FEMA Response: FEMA appreciates the commenter’s concerns and notes the
agency does implement specific codes and standards through grant program policies and
requirements.178 However, the scope of this rule is limited to implementation of FFRMS
consistent with Executive Order 11988, as amended, and the Revised Guidelines; FEMA
did not propose to adopt specific building codes and standards in the NPRM. FEMA
may, however, clarify the use of such standards through additional guidance.

For example, FEMA Recovery Interim Policy 104-009-11 Version 2.1, “Consensus-Based Codes,
Specifications and Standards for Public Assistance” (December 20, 2019) requires “application of the latest
nationwide consensus-based codes, specifications and standards that incorporate hazard resistance for PA
funded projects” including buildings, electric power, roads, bridges, potable water, and wastewater.
Available at https://www.fema.gov/sites/default/files/2020-07/fema_DRRA-1235b-public-assistancecodes-standards-interim-policy.pdf (last accessed Jan. 24, 2024). HMA also specifically references ASCE
24 and ASCE 7 in the HMA Program and Policy Guide available at
https://www.fema.gov/grants/mitigation/hazard-mitigation-assistance-guidance (last accessed Jan. 24,
2024).
FEMA adopted a Building Codes Strategy179 in March 2022 that focuses on
leveraging partnerships to promote current hazard resistant building codes; understanding
stakeholder needs to identify opportunities that advance building code adoption and
enforcement; amplifying climate science messaging to increase public demand for
building codes and standards; and targeting building code adoption outreach to the most
vulnerable communities to achieve a more resilient nation. FEMA believes the changes
made in this final rule and the FFRMS policy will further this strategy without mandating
specific codes and standards in the regulatory text. FEMA will continue to review and
update the agency’s policies and guidance regarding codes and standards to ensure the
agency is promoting use of the standards consistent with FEMA program requirements.
FEMA appreciates the commenter’s request that the agency mirror HUD’s
proposal to allow floodproofing of non-residential structures below the FFRMS flood
elevation. FEMA already allows for floodproofing of non-residential structures below
the floodplain in 44 CFR 9.11(d)(3) and will continue to allow floodproofing below the
FFRMS flood elevation. No changes to the regulatory text are required to achieve this
result.
H. FEMA’s FFRMS Policy Approach
1. Overall
Comments: Commenters offered support for the edits proposed to § 9.7 and the
accompanying proposed FFRMS policy document to implement FFRMS. Commenters
also stated specific support for FEMA’s policy decision to prioritize the use of CISA
when determining the FFRMS floodplain for actions subject to the FFRMS. Commenters
were also generally supportive of FEMA’s approach to utilize either the FVA or 0.2PFA
where CISA data was not available or not actionable.

See “Building Codes Strategy” March 2022 available at
https://www.fema.gov/sites/default/files/documents/fema_building-codes-strategy.pdf (last accessed Jan.
24, 2024).
FEMA Response: FEMA appreciates the commenter’s agreement with the
general policy approach detailed in FEMA’s FFRMS policy and the agency is finalizing
that policy approach with the publication of this final rule. FEMA notes the revisions
made to part 9 apply only to FEMA projects and not all Federally funded projects as
some commenters suggested. All Federal agencies will utilize the Revised Guidelines for
their own FFRMS implementation.
Comment: One commenter wrote in support of the revisions to § 9.7. The
commenter stated that a recent TMAC report indicated that existing 1 percent and 0.2
percent annual chance floodplains were insufficient for informing land use practices and
stated the use of CISA aligned with TMAC’s principle to use a climate-informed map for
floodplain management, separate from the 1 percent annual chance map used for NFIP
mandatory purchase and other regulatory requirements.
FEMA Response: FEMA appreciates the commenter’s support of the agency’s
preferred approach and the clarifications made in § 9.7 as part of this final rule.
Executive Order 11988, as amended, and the FFRMS reinforce the importance of
avoiding adverse impacts associated with actions in or affecting a floodplain and
minimizing potential harm if an action must be located in a floodplain. As amended,
Executive Order 11988 directs agencies to use a higher vertical flood elevation and
corresponding horizontal floodplain than that of the base flood for Federally funded
projects to address current and future flood risk and help ensure that projects last as long
as intended. FEMA appreciates the commenter’s reference to the recent TMAC
recommendations, but notes TMAC recommendations are not binding on FEMA and
relate directly to the NFIP, not necessarily to part 9 and this final rule.
Comment: One commenter was not supportive of FFRMS, stating that a national
“one-size-fits-all” approach that lacked flexibility to address specific regional and local
circumstances and needs and a uniform strategy would not adequately address the

nuanced and varied nature of flood dynamics. The commenter wrote that without tailored
considerations for regional variations, FFRMS overlooked critical factors, risking
inconsistency and inefficiency in flood management efforts.
FEMA Response: The FFRMS is a resilience standard with flexibility in the
approach selected to meet the standard. FEMA’s FFRMS policy explains how the
agency selects the FFRMS approach to use for each project and is not a “one-size-fits-all”
policy. The FFRMS policy is flexible to address data availability based on the location of
the action, criticality of the action being taken, and equity concerns and allows
consideration of regional variations and community concerns.
SLTTs can provide input into the floodplain determination. Pursuant to 44 CFR
9.11(d)(6), a more restrictive Federal, State, or local standard will be used. This includes
the use of local CISA data and methods that have been adopted by a community for use
in floodplain management, as long as such data result in a more restrictive
standard. FEMA values additional input from SLTT partners and the public throughout
the 8-step process.
Comment: Another commenter also opposed FFRMS, stating that the approaches
based on elevation and areal extent determined by flood elevations across the watershed
were subject to availability heuristic bias. The commenter stated that higher is not
always better and that FFRMS did not consider whether the standard was prone to error
and therefore introduced new risks, including the risk that FFRMS would impose more
costs than it achieves in benefits. The commenter stated FEMA acknowledged the
proposed standard would make errors and, in some cases, imposed costs greater than
anything it prevented or saved. The commenter recommended that FEMA test its new
standard in proposed use cases to determine where the standard would make errors. The
commenter recommended that where the probability and consequences of errors from
using the standard were significant, the agency should resort to detailed cost-benefit

analysis. The commenter recommended that the FFRMS be formulated with reference to
alternatives and cost-benefit analysis, stating the public deserves some clarity about when
FFRMS applies and when it did not.
FEMA Response: FEMA disagrees with the commenter that the agency is
assuming higher is universally better. There is no requirement in the FFRMS or the
Revised Guidelines to select the most restrictive standard, as FFRMS is a resilience
standard. The Revised Guidelines state “[w]hen an agency is not using the Climateinformed Science Approach in riverine flood hazard areas, the agency may select either
the Freeboard Value Approach or the 0.2-percent-annual chance elevation, as
appropriate, and is not required to use the higher of the two.”180 In some instances,
building to a higher elevation may lead to overbuilding and thus not be the most costeffective, equitable approach particularly for non-critical actions. FEMA believes its
proposed approach to use the CISA, and to utilize the lower of the FVA or 0.2PFA where
the CISA is not available and actionable, reflects appropriate sensitivity to cost and risk.
Further, the revisions to part 9 do not change FEMA’s long-standing requirement
as part of implementing Executive Order 11988, as amended, to only perform or fund
actions within or affecting floodplains if those actions are the only practicable
alternative. Through the 8-step process, FEMA will consider alternative locations,
alternative actions, nature-based solutions, and the no action alternative under the
practicability analysis. If there is no practicable alternative, FEMA will perform or fund
the action and will minimize any adverse impacts when doing so.
Regarding clarity on the application of FFRMS, FEMA defines “action subject to
the FFRMS” as “any action where FEMA funds are used for new construction,
substantial improvement, or to address substantial damage to a structure or facility.” The
FFRMS applies to grants for projects funding the new construction, substantial

See Revised Guidelines, pg. 57.

improvement, or repair of substantial damage under FEMA programs such as IA, PA, and
HMA programs, and grants processed by FEMA’s GPD. FFRMS applies only to Federal
actions and this rule only applies to those actions FEMA takes using Federal funding.
This rulemaking is generally not expected to negatively impact individuals and their
ability to pay. Where applicable, any increased costs associated with this rulemaking
would be subject to cost share requirements for FEMA’s programs.
FEMA also disagrees with the commenter that the agency acknowledged the
FFRMS would create errors and would impose costs greater than anything the standard
would prevent or save. FEMA believes the benefits of preventing property damage and
potentially saving lives justify the costs of the rule. These benefits are a result of the
improved protection of structures and facilities due to increased elevation and
floodproofing standards in FEMA’s implementation of the FFRMS. This rule will
improve the resilience of Federal investments to be better protected from flood damage
and promote preservation of the natural and beneficial values of floodplains.
FEMA believes the regulatory impact analysis was sufficiently detailed to analyze
the FFRMS approaches in general, as the RIA itself was not intended to analyze the costs
and benefits of applying the FFRMS standards to specific use cases. FEMA conducted
an analysis to create a range of the potential impacts. FEMA does not know how many
projects will be subject to the FVA, 0.2PFA, or CISA requirements over the 10-year
period as FEMA anticipates it to continually change. Therefore, FEMA has analyzed the
impact of FVA, 0.2PFA and CISA for each of the programs, PA, IA, and HMA as if each
were the only FFRMS expansion option. Evaluation of the practicability of certain
FFRMS standards in the context of specific use cases occurs as part of the 8-step process,
and to the extent that FEMA finds certain approaches to be incompatible with practicable
implementation in certain cases, FEMA may issue further guidance on the topic. In

general, however, commenters did not identify categories of actions for which application
the FFRMS approaches appears likely to be particularly problematic.
While FEMA could not quantify the costs and benefits of several aspects of this
rule, FEMA was able to quantify the number of structures and facilities that would be
impacted by the rule. FEMA was transparent about its inability to quantify the costs and
benefits of several aspects of the rule. FEMA provided a literature review of relevant
benefits that could be realized from flood mitigation, an analysis of benefits quantified
for the rule, and a qualitative description of additional benefits that could be realized
from the rule. FEMA conducted a quantitative cost-benefit analysis based on the data
available.
2. Application of the FFRMS Approaches for Critical and NonCritical Actions
Comments: Commenters were generally supportive of FEMA’s policy approach
to utilize the higher of the FVA or 0.2PFA for critical actions where CISA data was not
available and/or actionable. Some of these commenters, however, expressed concerns
with utilizing the lower of the FVA or 0.2PFA for non-critical actions where CISA data
was not available and not actionable. Several of these commenters inaccurately stated
policy positions on the FFRMS approaches selected by other Federal agencies for noncritical actions.
Commenters requested that FEMA adopt the higher of the FVA or 0.2PFA for
non-critical actions where CISA data was not available and not actionable. Commenters
stated that FEMA’s policy decision to utilize the lower standard would undermine the
urgent need to design development proposals to a more resilient standard and minimize
overall impacts to the floodplain. In response to FEMA’s statements in the NPRM
regarding concerns with overbuilding and inequitable outcomes that may not be costeffective, a commenter noted that FEMA has consistently advocated for states and

localities to embrace stricter standards such as updated building codes that can have
similar cost implications. Commenters also wrote that upfront investments in resilient
development produced significant cost savings to communities in the long run and stated
that the cost of construction was not the only consideration for costs, particularly for
housing. These commenters requested FEMA consider the higher standard for noncritical actions, stating that the long-term benefits would outweigh the costs.
FEMA Response: As explained above, there is no requirement in the FFRMS or
the Revised Guidelines to select the most restrictive standard, as FFRMS is a resilience
standard. The Revised Guidelines state “[w]hen an agency is not using the Climateinformed Science Approach in riverine flood hazard areas, the agency may select either
the Freeboard Value Approach or the 0.2-percent-annual chance elevation, as
appropriate, and is not required to use the higher of the two.”181 While the approach the
commenters suggested would ensure that applicants were building all actions to the most
protective level where CISA data is not available, this approach may lead to overbuilding
and thus not be the most cost-effective, equitable approach particularly for non-critical
actions. FEMA believes the agency’s approach is sufficiently protective of all actions
and would be less expensive and complex to administer and implement than the
commenters’ approach.
FEMA did consider the long-term costs and benefits of the rulemaking and policy
and does not agree with the commenters that FEMA’s policy approach would result in
inequities. Rather, FEMA believes the policy approach is appropriate as it will help
ensure communities can rebound quickly and effectively from a disaster.
Comments: Other commenters requested FEMA require the use of the more
protective standard for non-critical actions to better align with HUD’s proposed rule to
implement the FFRMS. Several of those commenters stated that aligning with HUD’s

See Revised Guidelines, pg. 57.

approach would reduce conflicts and delays. One commenter stated that FEMA’s
approach to use a lower elevation for non-critical projects facilitated a beneficial
benefit/cost ratio. That commenter stated the higher standard should not be overly
burdensome and consistent with another commenter noted the cost of construction was
not the only consideration for costs, particularly for housing.
FEMA Response: As explained above, there is no requirement in the FFRMS or
the Revised Guidelines to select the most restrictive standard, as FFRMS is a resilience
standard. While the approach the commenter suggested would ensure applicants were
building all actions to the most protective level where CISA data is not available, this
approach may lead to overbuilding and thus not be the most cost-effective, equitable
approach, particularly for non-critical actions. FEMA believes the agency’s approach is
sufficiently protective of all actions and would be less expensive and complex to
administer and implement than the commenter’s approach.
While HUD’s rule would require all proposed actions that require an
Environmental Impact Statement (EIS) under NEPA to define the FFRMS floodplain
using CISA, FEMA does not believe it is appropriate to require CISA in every instance
where an EIS is required. FEMA cannot utilize CISA if CISA data is not available and
actionable even if an action requires an EIS. Where CISA data is both available and
actionable, FEMA will require CISA, including for those proposed actions that require an
EIS.
HUD proposed to use the CISA to determine the FFRMS floodplain where the
data is available and actionable. For non-critical actions where CISA is unavailable, HUD
will use the 0.2PFA. Where the 0.2PFA is also unavailable for non-critical actions, HUD
will use the FVA. For critical actions where CISA is unavailable, HUD will use either
the 0.2PFA or the FVA to determine the FFRMS floodplain, whichever results in the
larger floodplain and higher elevation. The only significant difference between HUD’s

policy approach and FEMA’s is that HUD will first use the 0.2PFA for non-critical
actions where it is available, but the CISA is not, and FEMA will use the lower of the
0.2PFA and the FVA for non-critical actions where CISA is not available.
FEMA considered requiring the use of the 0.2PFA when CISA is not available for
non-critical actions rather than the lower of the 0.2PFA or FVA. While application of the
0.2PFA may provide a more consistent reduction of flood risk as it is probability based,
the relationship to the FVA varies depending on topography (i.e., in some instances the
0.2PFA may result in a lower flood elevation than the FVA). Application of only the
0.2PFA without a comparison to the FVA may result in building to a higher resilience
standard than is necessary. There could also be equity concerns related to underbuilding
or overbuilding to this standard, as communities seek to rebound quickly and effectively
from a disaster. Data availability of the 0.2 percent annual chance floodplain can also be
a challenge in implementing the 0.2PFA, as well as technical considerations relating to
how wave action may be incorporated. In coastal areas, the Revised Guidelines note
Federal agencies should use the FVA as the minimum elevation when not using the CISA
if the 0.2 percent annual chance flood information depicted on FEMA's regulatory
products considers storm-surge hazards but not wave action and wave action data cannot
be obtained from other sources. Only some of those coastal areas have included wave
action in the computation of the 0.2 percent annual chance floodplain.
FEMA’s FFRMS policy provides details on how FEMA will coordinate with
other agencies when implementing actions in the same area as another Federal agency.
See Section H, page 9. FEMA’s interagency consultative role in the broader
implementation of the FFRMS across the Federal government, through the agency’s
participation in the Interagency Working Groups and the FIFM-TF helps ensure
consistent and effective implementation.

FEMA agrees with the commenter that equity is an important consideration and
FEMA incorporated equity into the agency’s policy approach as explained above. Equity
was a primary consideration for FEMA’s policy approach, not a desire to achieve a better
benefit-cost ratio for non-critical actions as the commenter suggests. FEMA did consider
the long-term costs and benefits of the rulemaking and policy and does not agree with the
commenters that the policy approach would result in inequities. Rather, FEMA believes
the policy approach is appropriate as it will help ensure communities seeking to rebound
quickly and effectively from a disaster may do so.
Comment: One commenter also stated using the less restrictive standard could
result in greater impacts on floodplains, ESA-listed species, Tribal treaty rights, and
realized costs to vulnerable communities. The commenter stated using the higher
standard between FVA or 0.2PFA when CISA data was not available and not actionable
would not only prevent impacts on floodplains but would also avoid a similar situation
that required expensive infrastructure upgrades and government liability after poorly
located initial development within floodplains.
FEMA Response: As explained above, there is no requirement in the FFRMS or
the Revised Guidelines to select the most restrictive standard, as FFRMS is a resilience
standard. While the approach the commenter suggested would ensure applicants were
building all actions to the most protective level where CISA data is not available, this
approach may lead to overbuilding and thus not be the most cost-effective, equitable
approach particularly for non-critical actions. FEMA believes the agency’s approach is
sufficiently protective of all actions and would be less expensive and complex to
administer and implement than the commenter’s approach.
A more restrictive application of the FVA or 0.2PFA would not necessarily
determine whether an action will impact a protected species or critical habitat or impact
Tribal treaty rights. In step 4 of the 8-step process, FEMA determines impacts to the

floodplain which include changes to the hydraulics and hydrology of the floodplain
which informs on potential impacts to protected species and their critical habitats. FEMA
will also perform Section 7 consultation under the Endangered Species Act where
appropriate.
3. Alternative Policy Approaches
Comments: Two commenters provided feedback on FEMA’s specific request for
comment on requiring the highest elevation for all actions regardless of criticality. One
commenter noted FEMA’s policy approach was flexible and acknowledged the need to
be flexible and design an approach that would not unduly burden communities. The
commenter recommended that FEMA continue to evaluate these approaches and consider
revising and strengthening the standards if the standards become insufficiently protective.
The other commenter stated that completing the required floodplain analysis for any one
of the approaches would be challenging on its own and to require the analysis and
consideration of all three would be costly and might not yield results materially different
from the CISA. The commenter stated that because CISA would result in a
determination of the appropriate level of resilience to design minimization measures, it
would be unnecessary to require the use of the highest standard for all actions. The
commenter stated that such an approach would be costly and, in some instances, would
result in projects being built to higher resilience levels than required. This commenter
supported FEMA’s policy approach for critical actions as separate and apart from other
actions, stating by separating critical actions from others, FEMA would be able to
properly balance different levels of protection with minimization and mitigation measures
and cost considerations.
FEMA Response: FEMA appreciates the commenters’ consideration of the
alternatives and understanding of the need for a flexible approach balancing cost and
equity considerations. FEMA agrees with the commenter that the use of the highest

standard for all actions is not always appropriate and the FFRMS policy reflects the
decision to use the lower standard for non-critical actions. FEMA intends to continue to
evaluate the policy approach as FFRMS is implemented and will consider future
revisions as appropriate. While FEMA understands the commenter’s concern that
completing the analysis for all of the approaches for every action could be an
administrative burden on the agency, the agency does not believe that completing the
analysis for any one of the approaches is on its own too challenging. As explained above,
FEMA will use the FFRMS Job Aid to determine the FFRMS floodplain for actions, and
that tool provides the agency and stakeholders with a methodology and process for
completing the analysis.
Comment: Two commenters wrote that FEMA artificially constrained the
agency’s consideration of alternatives to just the three disclosed regulatory approaches in
the proposal and did not consider no regulatory action as an alternative. One of the
commenters added that FEMA did not assess how private and non-Federal interests
would adapt to flooding without regulation and the no regulation alternative likely
understated flood adaptation, which resulted in the cost-benefit analysis overstating the
benefits of the three regulatory alternatives. The commenter also wrote the true value of
cost-benefit analysis is nearly always realized when alternatives are identified that
achieve substantial benefits and at much less cost than much higher levels of regulation.
The commenter stated that FEMA could have analyzed other alternatives, such as
strategic choices of use-case subsets for application of the various FEMA standards rather
than all use-cases being subject to CISA. The commenter further stated that the FVA or
0.2PFA entail much lower analysis costs and are probably better suited to decisions
where the costs of the structures or costs of adaptation were lower. The commenter
stated avoiding the CISA in those situations might result in substantial cost savings.

FEMA Response: FEMA’s policy approach detailed in the NPRM preamble
explains how the agency balanced consideration of costs with data availability, criticality
of the action, and equity in establishing a flexible framework for FFRMS
implementation. Consistent with the Revised Guidelines, FEMA’s preferred approach is
the CISA, but the FFRMS policy explains the CISA must be available and actionable and
where it is not, the FVA or 0.2PFA will be utilized depending on the criticality of the
action and availability of data. The CISA is FEMA’s preferred approach, as FEMA
believes it has the potential to be the best and most well-informed approach to building
resilience in an equitable manner and ensuring a reduction in disaster-related suffering.
CISA is designed to meet current and future estimates of flood risks unique to the
location and thus provide the best overall resilience, cost effectiveness, and equity.
FEMA understands the availability and actionability of data are key factors in completing
the RIA in a consistent, equitable manner and believes data availability and actionability
will continue to advance for the CISA. In response to the commenter’s concerns that
FEMA did not assess how private and non-Federal interests would adapt to flooding
without regulation, FEMA notes that this regulation would not regulate purely privately
funded activity in the floodplain. To the extent that private incentives exist to plan for
increased flood risk, those incentives are substantially diluted by the use of FEMA
assistance to support projects. FEMA thus did not understate private incentives to plan
for flood risk and did not overstate the benefits of the regulatory alternatives.
FEMA's policy approach includes consideration of the alternatives as part of the
framework explained above. FEMA intends to continue to evaluate the policy approach
as FFRMS is implemented and will consider future revisions as appropriate.
Additionally, FEMA’s RIA does analyze all three approaches, as well as the no action
alternative the commenter references. Under the No Action alternative, although nonFederal jurisdictions or private entities may continue to adapt to the future risk of

flooding over time, the current Federal standards would remain. To the extent that
private incentives exist to plan for increased flood risk, those incentives are substantially
diluted by the use of FEMA assistance to support projects. Accordingly, such adaptation
is unlikely to occur as quickly or as fully as this rule, leaving Federal investments at a
greater risk of flooding than under the final rule. Because of the greater risk to structures
and facilities, there is also a greater risk to life. In addition, the natural value and
function of the floodplains would be at a greater risk of loss under the No Action
alternative. However, the No Action alternative would initially cost incrementally less
than the FFRMS approach and would result in less administrative complexity as
compared to implementing the FFRMS. Overall, based on the evaluation, the FFRMS
was selected over the No Action alternative for the benefits that it provides to Federal
investments and those who use them.
In response to the commenter’s suggestion on how FEMA should have analyzed
other alternatives, such as strategic choices of use-case subsets for application of the
various FEMA standards rather than all-use cases being subject to CISA, FEMA did
complete an analysis of all three approaches. FEMA analyzed the impact of the FVA,
0.2PFA, and CISA for each of the programs (PA, IA, and HMA) as if each approach
were the only FFRMS expansion option to create a range (see sections 7.4, 7.5, and 7.6 in
the RIA). In reality, it is likely that with FFRMS, there will be a mix, with some projects
falling under CISA, FVA, or 0.2PFA. Therefore, the actual cost will fall somewhere
within the range. FEMA selected the CISA as the primary approach, as it is the preferred
option. CISA is designed to meet current and future estimates of flood risks unique to the
location and thus provide the best overall resilience, cost effectiveness, and equity. As
noted above, FEMA intends to continue to evaluate the policy approach as FFRMS is
implemented and will consider future revisions as appropriate. Such revisions could in
principle include defaulting to the FVA or 0.2PFA for smaller investments, although

FEMA believes that the administrative costs associated with implementing the CISA are
likely to decline over time.
Further, FEMA did consider the long-term costs and benefits of the rulemaking
and policy. Rather, FEMA believes the policy approach is appropriate, as it will help
ensure communities can rebound quickly and effectively from a disaster.
4. Comments on FEMA’s FFRMS Policy
Comment: A commenter requested FEMA revise the proposed principle B in the
FFRMS policy (“Avoid, to the extent possible, the long- and short-term adverse impacts
associated with occupancy and modification of floodplains and avoid direct or indirect
support of floodplain development wherever there is a practicable alternative”) to include
additional language for FEMA to restore and preserve the natural and beneficial functions
and values of wetlands and floodplains. Another commenter requested FEMA add a
principle to the FFRMS policy and final rule specific to the restoration and preservation
of the natural and beneficial functions and values of floodplains, and use of natural
systems, ecosystem processes, and nature-based approaches.
FEMA Response: FEMA believes the commenters’ requested revisions are
unnecessary. The principles laid out in the FFRMS policy are an abbreviated version of
FEMA’s policy statements found in § 9.2. As stated in new § 9.2(d), FEMA shall
“[r]estore and preserve the natural and beneficial values served by floodplains” and
“[p]reserve and enhance the natural values of wetlands.” FEMA’s longstanding
requirements in 44 CFR 9.11(e) outline the agency’s requirements to restore and preserve
the natural and beneficial values served by floodplains and wetlands. These current
requirements meet the commenters’ concerns and remain unchanged in this rulemaking
process.
Comment: A commenter requested other specific edits to the policy document,
including adding “dry” before floodproofing throughout the document and replacing

“minimization standards” with “residential flood resistant design and construction
requirements.” The commenter also suggested FEMA add emphasis that nature-based
solutions complement the elevation requirements versus being alternative actions and
implementing a nature-based solution would not exempt an applicant from the elevation
requirements.
FEMA Response: FEMA believes the current language in the FFRMS policy is
sufficiently clear. FEMA believes adding “dry” before floodproofing is not necessary as
floodproofing is described in detail in new § 9.11(d)(3)(ii) and section G.1.c of the
FFRMS policy. Further, FEMA’s policy references the use of the agency’s additional
resources including FEMA’s NFIP Technical Bulletins that address floodproofing.182
Using the term “minimization requirements” is consistent with the minimization
provisions and minimization standards in § 9.11. The term “flood risk minimization
measures” is preferred by FEMA to avoid confusion with “hazard mitigation” actions
funded by FEMA.
FEMA believes that natural features and nature-based solutions should be
considered as project alternatives and used where possible. Where they are not
practicable as an alternative on their own, natural features and nature-based solutions
may be incorporated into actions as minimization measures. The FFRMS policy clarifies
the FFRMS is a resilience standard and where elevation may not be feasible or
appropriate, the FFRMS floodplain establishes the level to which a structure or facility
must be resilient. Resilience measures include using structural or nonstructural methods
to reduce or prevent damage; elevating a structure; or, where appropriate, designing it to
adapt to, withstand and rapidly recover from a flood event.

See FFRMS Policy, pg. 8, Section G.1.d “FEMA guidance provides technical information on elevation
methods for new construction and retrofitting existing structures with various types of foundations.
Guidance is available in NFIP Technical Bulletins (1-11), FEMA P-758: Substantial
Improvement/Substantial Damage Desk Reference, FEMA P-936: Floodproofing Non-Residential
Buildings, FEMA P-348: Protecting Building Utility Systems from Flood Damage, FEMA P-467-2:
Floodplain Management Bulletin on Historic Structures, among other FEMA publications.”
Comment: The same commenter requested several clarifications. The commenter
requested FEMA clarify the requirements provided in the policy were minimum
requirements not maximums and that applicants could exceed those requirements. The
commenter requested FEMA clarify the policy’s requirements apply regardless of
whether or not substantial improvement or substantial damage is triggered and also
clarify whether a structure within an FFRMS floodplain must comply with the policy’s
requirements.
The commenter also requested clarifications on—
•

The application of FFRMS to FEMA’s benefit-cost analysis tool used by
some FEMA programs;

•

whether the FFRMS policy limited where certain projects could be done,
citing an example of mitigation reconstruction projects being prohibited in V
Zone; and

•

what constitutes a critical action and specifically whether or not certain
specific actions would be considered critical, such as construction of new safe
room and stand-alone generator projects if they are supporting a critical
facility.

FEMA Response: The commenter is correct that FFRMS is a minimum
requirement under part 9. In section C.4 of the policy, FEMA clarifies pursuant to 44
CFR 9.11(d)(6), a more restrictive Federal, State, or local standard will be used. Actions
may follow a higher standard so long as the action complies with FEMA’s program
requirements.
In section A.2 of FEMA’s FFRMS policy, the agency clarifies applicability of the
policy to specific actions, including actions involving substantial improvement and
substantial damage. FEMA does not believe the policy requires additional revision given
the language in section A.2 regarding applicability. Section C of the policy explains how

FEMA determines the FFRMS floodplain. Specific actions listed in section A.2 that are
within the FFRMS floodplain are subject to the requirements of the policy.
FEMA appreciates the commenter’s interest in the application of the Benefit-Cost
Analysis (BCA) tool to the FFRMS process for FEMA programs. FFRMS does consider
current and future flood risks. Where CISA is available and actionable, sea level rise is
specifically incorporated into the determination of the FFRMS flood elevation. FEMA’s
FFRMS policy will generally not change BCA requirements for FEMA programs. For
FEMA’s HMA program, additional elevation above the BFE incorporated into the design
of the project and attributed to current and future flood risk such as sea level rise would
be allowable in the BCA. Currently, pre-calculated benefits that streamline the costeffectiveness determination for structure elevation projects are limited to structures where
some part of the structure is within the SFHA. For an elevation project where the entire
structure footprint is outside the SFHA, a BCA will be required to show costeffectiveness. For FEMA’s PA program, cost-effectiveness requirements apply only to
Hazard Mitigation measures on projects to restore disaster damaged structures and
facilities. FFRMS elevation requirements are mandated by law and therefore are eligible
for financial assistance without additional cost-effectiveness analysis. FEMA notes any
increased costs are generally eligible for funding under FEMA’s assistance programs
subject to cost share requirements.
The requirements of § 9.11(d)(1) still apply and remain unchanged in this final
rule. The commenter references V Zone mitigation reconstruction projects. For V Zone
actions that are new construction, FEMA is prohibited from funding such actions unless
the action is functionally dependent or facilitates open space use. The HMA Program
and Policy Guide also states HMA mitigation reconstruction projects are prohibited in the

V Zone and in floodways183 and this final rule and FFRMS policy will not change that
requirement. HMA mitigation reconstruction actions that are within the FFRMS
floodplain must either be relocated or elevated to the FFRMS requirements.
Regarding the commenter’s request for clarification on whether or not specific
actions were considered critical and subject to FFRMS, FEMA cannot provide a full
adjudication of whether an action is a critical action without context. FEMA makes the
determination of whether an action is a critical action as part of the 8-step process on a
case-by-case basis with input from the applicant. FEMA’s definition of “critical action”
is consistent with Executive Order 11988, as amended, through the Implementing
Guidelines and further clarified in the Revised Guidelines. The Revised Guidelines
provide further details on what constitutes a critical action. FEMA will leverage the
information in the Revised Guidelines when providing additional guidance to
stakeholders.
As explained throughout this final rule, FEMA will publish additional resources
for the public and SLTT partners identifying what the FFRMS is, and how the agency
will implement the Executive Orders to help applicants of FEMA-funded assistance
programs. FEMA’s regional offices will also provide technical assistance in support of
FFRMS implementation.
Comment: The same commenter also had several other recommendations for
FEMA’s FFRMS policy. The commenter recommended FEMA add an emphasis on
specific codes and standards that might be applicable to specific FEMA programs, limit
the dry floodproofing design to 3 feet for any new construction as recommended by NFIP
Technical Bulletin 3, and cap elevation costs at the current NFIP ceiling for building
coverage or the current replacement value. The commenter also suggested FEMA add

Hazard Mitigation Assistance Program and Policy Guide, pg. 85 available at
https://www.fema.gov/grants/mitigation/guide (last accessed Mar. 20, 2024).
information related to relocation regarding nature-based solutions, stating that instead of
elevating or reconstructing in place the preference should be to relocate an action.
FEMA Response: The FFRMS policy provides information on FEMA’s Building
Codes Strategy and refers to specific codes and standards the agency leverages through
specific program policies. FEMA does not believe additional emphasis on specific codes
and standards is required in the FFRMS policy, as these are detailed in each specific
program’s policies. FEMA will distribute additional resources for the public and SLTT
partners identifying what the FFRMS is, and how the agency will implement the
Executive Orders to assist applicants of FEMA-funded assistance programs. FEMA will
also provide technical assistance through the agency’s regional offices in support of
FFRMS implementation.
FEMA’s FFRMS policy states “[e]levation and floodproofing requirements must
be consistent with NFIP criteria or any more restrictive local standard.”184 Rather than
direct quotation of a specific requirement for floodproofing design as the commenter
requested, section G.1.d of the FFRMS policy addresses the use of other FEMA
publications, including NFIP Technical Bulletins to assist readers.
FEMA believes the commenter’s suggested funding limitations to cap elevation
costs are outside the scope of this rulemaking. Applicants seeking FEMA program
funding will be required to comply with that program’s eligibility requirements, which
may consider cost effectiveness of the proposed action.
Regarding the commenter’s request to add information regarding relocation,
FEMA notes this policy does not change the current requirement of step 3 of the 8-step
process: “If a practicable alternative exists outside of the floodplain or wetland FEMA
must locate the action at the alternative site.”
Comment: Another commenter asked if Approach 2 was only for critical actions.

FFRMS policy, pg.8.

FEMA Response: Approach 2 (the FVA) may be used for both critical and noncritical actions where CISA is not available and actionable. FEMA’s FFRMS policy
requires FEMA to determine the FFRMS floodplain according to the CISA for all
locations where the best-available, actionable hydrologic and hydraulic data methods that
integrate current and future changes in flooding based on climate science exist. When
CISA is not available for a critical action, the FFRMS policy requires FEMA to
determine the FFRMS floodplain as the area that would be inundated by the higher of the
0.2 percent annual chance flood and 3 feet of freeboard above the BFE for that location
(the Freeboard Value Approach or FVA). When CISA is not available for a non-critical
action, the FFRMS policy requires FEMA to determine the FFRMS floodplain as the area
that would be inundated by the lower of the 0.2 percent annual chance flood and 2 feet of
freeboard above the BFE for that location (the FVA). In coastal areas where CISA is
unavailable, the FFRMS policy requires the FVA be used if the available 0.2 percent
annual chance flood elevation does not account for wave action.
Comment: One commenter stated several links in the policy document did not
appear to be active.
FEMA Response: FEMA appreciates the commenter’s review of the policy
document links and has confirmed the links are updated and active in the attached
FFRMS policy.
I. The FFRMS and Floodplain/Wetland Determination Data
1. Data Availability
Comments: Four commenters discussed the availability of the CISA data to
implement the FFRMS and some of the commenters requested maps or other resources
depicting the FFRMS floodplain. A commenter stated there were no consistently
accurate resources depicting the floodplain, floodway, the 100-year floodplain, the 500year floodplain, or the FFRMS floodplain. The commenter stated that the floodplain

determination triggered whether a proposed action was required to complete the 8-step
decision-making process and the lack of FFRMS floodplain maps would create difficulty
for stakeholders seeking Federal funding from FEMA for projects. The commenter
stated that FEMA’s work with other agencies to develop FFRMS tools and resources
would help situations involving existing development but would not deter new
development because the FFRMS floodplain determination would come only after the
initial investments were made. The commenter added that FEMA’s regulatory maps for
the NFIP help stakeholders determine whether a property is located in a regulated
floodplain within a short period of time and with a high degree of certainty and that the
FFRMS establishes a moving, undocumented, and unmapped target that would be used
haphazardly to determine the floodplain status of any given property.
Further, the commenter stated FEMA had not provided enough information on
how FEMA would implement the preferred CISA approach and had not defined when
data might be considered to be “available” or “actionable.” The commenter stated the
regulatory text lacked information on the CISA data and FEMA’s request for comment
on how the CISA could be implemented using a publicly accessible, standardized,
predictable, flexible, and cost-effective methodology indicated the agency was uncertain
of how to apply the CISA to any given project. The commenter stated the lack of maps
and other resources depicting the FFRMS floodplain made the floodplain determination
susceptible to confusion, error, and potential abuse. The commenter stated FEMA
rejected the use of the 0.2PFA based on data availability, costs, and certainty for
stakeholders and stated concern with FEMA moving forward with the CISA, stating that
approach was supported by even less data.
Conversely, a second commenter stated the necessary data and modeling
capabilities underpinning CISA have continued to expand in recent years, making CISA
an increasingly practicable methodology for more accurately determining the extent of

the FFRMS floodplain. The commenter wrote that FEMA should emphasize developing
and deploying the necessary data to support the use of the CISA more broadly and
specifically consider and address how regional data limitations could result in inequitable
outcomes if the CISA is routinely unavailable in low income, rural, Tribal, or otherwise
underserved communities.
Two other commenters requested that FEMA provide mapping depicting the
FFRMS floodplain. One commenter specifically requested mapping reflecting the CISA.
One of the commenters noted the importance of mapping to identify all 3.5 million miles
of floodplains associated with streams, rivers, and coastlines. This commenter
recommended FEMA create maps with as much coverage as possible by considering
incorporating data from areas with Base Level Engineering (BLE) in additional areas
with detailed flood studies, when possible. The commenter stated this was the best way
to ensure consistent, accurate CISA use.
FEMA Response: FEMA disagrees with the commenter that there are not
sufficient resources depicting the floodplain, floodway, the 1 percent annual chance
floodplain, or the 0.2 percent annual chance floodplain for all regions of the country. The
commenter acknowledges further in their own comment that such resources currently
exist for the 1 percent annual chance floodplain when stating the wide availability and
certainty of FEMA’s FIRMs. While regulatory mapping products may not exist
depicting all of the areas referenced by the commenter, floodplain determinations under
part 9 are not solely predicated on existing FIRMs. Rather, FEMA will use best available
information, which may include information that is non-regulatory or FEMA preliminary
flood hazard data. To be designated as the best available information, the information
must be at least as restrictive as information provided by effective FIRMs per FEMA’s

best available information policy.185 Given this policy, the agency will be continuously
improving the data associated with the floodplain determination. FEMA’s regulatory
mapping products are a starting point for the floodplain determination under part 9 and
any other flood information used should be at least as restrictive as those regulatory
products.
Further, while there are no regulatory mapping products depicting the FFRMS
floodplain, FEMA believes the information provided in the public docket with this
rulemaking is sufficient to establish the FFRMS floodplain. Specifically, the FFRMS
CISA State of the Science Report and the FFRMS Job Aid are resources to determine the
FFRMS floodplain. Using the FFRMS Job Aid, FEMA can determine the FFRMS
floodplain relevant to a particular location within approximately 23 minutes.
While FEMA appreciates that the commenter seeks to make the floodplain
determinations, the agency has historically made and will continue to make floodplain
determinations under part 9 by partnering with applicants in the 8-step decision-making
process. FEMA will make the floodplain determination leveraging the FFRMS Job Aid
published on the agency’s website and in the public docket of this rulemaking. The
FFRMS Job Aid is a resource for FEMA and applicants that details the methodology and
process by which the FFRMS floodplain can be determined for the CISA, FVA, and
0.2PFA. FEMA further notes that the commenter’s concerns regarding the floodplain
determination are only a part of the analysis at Step 1 of the 8-step process. The
determination in Step 1 is not just whether or not an action is located within a floodplain
or wetland but is also whether the action would impact the floodplain or wetland.

See FEMA Policy 104-008-2: Guidance on the Use of Available Flood Hazard Information, available at
https://www.fema.gov/sites/default/files/2020-04/Available_Flood_Hazard_Information_Policy_104-0082.pdf (last accessed Mar. 20, 2024).
FEMA will continue to rely on 44 CFR 9.7, FEMA Policy 104-008-2: Guidance
on the Use of Available Flood Hazard Information,186 and the Revised Guidelines in
determining whether CISA and flood hazard data is available and actionable. The
FFRMS CISA State of the Science Report is based on the Revised Guidelines and further
refines the initial framework from Appendix H to define two specific workflows for
applying CISA. The FFRMS CISA State of the Science Report identifies the latest sea
level rise projections from the National Climate Assessment as available and actionable
data for CISA.187 FEMA understands the commenter’s concerns in seeking a simplified
resource that depicts the FFRMS floodplain and is coordinating across the federal
government to develop additional tools beyond the FFRMS Job Aid to assist agencies
and stakeholders in determining the appropriate vertical flood elevation and
corresponding horizontal FFRMS floodplain. FEMA will continue to collaborate across
the Federal government to develop tools to facilitate the implementation of CISA and the
FFRMS. The IWG recently released a beta version of the Federal Flood Standard
Support Tool (FFSST), a novel, interactive, map-based tool that incorporates new data to
help users identify if a Federally funded project is in the FFRMS floodplain, for
comment.188 However, FEMA will initially rely on the FFRMS Job Aid methodology to
determine the FFRMS floodplain.
The commenter incorrectly characterizes FEMA’s request for comment as an
indication that the agency is unable to apply the CISA. As explained above and
throughout this final rule, FEMA is leveraging the resources provided in the public
docket of this rulemaking to implement the FFRMS. As part of the NPRM, FEMA
sought public comment to gauge the public’s understanding of CISA and implementation
of the FFRMS using the CISA, including locally available CISA data and methods.
Available at https://www.fema.gov/sites/default/files/202004/Available_Flood_Hazard_Information_Policy_104-008-2.pdf (last accessed Jan. 24, 2024).
187 FFRMS CISA State of the Science Report, pgs. 22-23.
188 89 FR 25674 (Apr. 11, 2024).
FEMA is collaborating across the Federal government to develop resources to further
assist with FFRMS implementation beyond the FFRMS Job Aid provided in the
rulemaking docket, the public comments requested will help the agency through work
with the IWG to enhance the Job Aid and other interagency resources. Additionally,
FEMA sought public comment to engage more dialogue on data availability and
actionability beyond Federal interagency resources for FFRMS implementation.
FEMA further disagrees with the first commenter that the CISA is supported by
even less data than the 0.2PFA. FEMA’s policy addresses concerns regarding the
availability and actionability of CISA data by offering a flexible approach to implement
either the FVA or 0.2PFA where CISA data is not available and/or actionable. Further,
as the policy explains, the use of both CISA and 0.2PFA are subject to data availability.
While CISA is preferred, where CISA data is not available and/or actionable, the agency
will rely on the alternative approaches as detailed in the FFRMS policy.
FEMA agrees with the second commenter that since the introduction of the CISA
in 2015, additional data has become available to better inform the CISA.189 FEMA
believes data availability and actionability will continue to advance for the CISA in the
future. Specifically, FEMA expects more data will be developed supporting broaderbased application of the CISA as agencies implement the FFRMS, and this data will be
considered and incorporated into future updates of the FFRMS and FEMA's
implementation thereof. FEMA’s policy approach is to use the CISA where available
and actionable, recognizing that the data is still not available and not actionable in every
location. FEMA also recognized equity concerns in the policy approach, specifically

See “Federal Flood Risk Management Standard Climate-Informed Science Approach (CISA) State of
the Science Report,” available at https://www.whitehouse.gov/wp-content/uploads/2023/03/Federal-FloodRisk-Management-Standard-Climate-Informed-Science-Approach-CISA-State-of-the-ScienceReport.pdf?trk=public_post_comment-text (last accessed Jan. 24, 2024), https://www.fema.gov/floodplainmanagement/intergovernmental/white-house-flood-resilience-interagency-working-group (last accessed
Jan. 24, 2024), and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0007.
considering over- and under-building concerns for locations where the CISA may be
unavailable as explained in the NPRM preamble. The Revised Guidelines recognize the
importance of consideration of impacts to vulnerable populations, including those at risk
to impacts of flooding due to their location or because they are overburdened, lack
resources, or have less access to resources.190 Consistent with these concerns, FEMA's
FFRMS policy would require the lower of the FVA floodplain or the 0.2PFA floodplain
for non-critical actions. FEMA believes the lower approach would help reduce the
burden on communities by addressing concerns related to overbuilding, particularly in
underserved communities seeking to rebound quickly and effectively from a disaster.
Selecting the lower approach for non-critical actions will still result in a higher level of
resilience than the current requirements under part 9, while also taking equity and costeffectiveness considerations into account.
FEMA appreciates the concerns of the remaining commenters requesting maps
that depict the FFRMS floodplain and the importance of providing maps with as much
coverage as possible. FEMA understands the commenter’s concerns in seeking a
simplified resource such as a map depicting the FFRMS floodplain and is coordinating
across the federal government to develop additional tools beyond the FFRMS Job Aid to
assist agencies and stakeholders in determining the appropriate vertical flood elevation
and corresponding horizontal FFRMS floodplain. The IWG recently released a beta
version of the Federal Flood Standard Support Tool (FFSST), a novel, interactive, mapbased tool that incorporates new data to help users identify if a Federally funded project
is in the FFRMS floodplain, for comment.191 However, FEMA will initially rely on the
FFRMS Job Aid methodology to determine the FFRMS floodplain.
2. Methodology

190
See Revised Guidelines, pg. 67.
89 FR 25674 (Apr. 11, 2024).

Comments: FEMA received questions regarding the CISA floodplain
determination methodology. Commenters stated the NPRM did not specify how FEMA
would determine the best-available, actionable climate science data and methods for the
CISA, stating the agency also did not explain how it would select, evaluate, and update
the data and methods that inform the CISA. One commenter asked what sources of data
and methods FEMA would use; how FEMA would account for uncertainty and
variability in climate projections; and how often FEMA would update the data and
methods to reflect new scientific findings. One commenter requested information on the
methods FEMA would use prior to selecting data and asked whether state agencies,
floodplain managers, and other stakeholders would have an opportunity to inform what
best aligned with on-the-ground realities. Both of these commenters asked how FEMA
would communicate the data and methods to stakeholders and the public.
One commenter raised concerns that the CISA was still emerging and stated the
overall approach would be overly conservative. Similar to other comments described
earlier in this summary, this commenter asked who would make the determination to
accept the science used for CISA and which projections would be applicable for design
life and risk aversion of the structure. This commenter noted the FFRMS did not mention
how recent the local climate study needed to be for the CISA and stated that regulatory
agencies choose to enforce the most extreme flood events. The commenter
recommended FEMA provide guidance for how to use climate projection data for
development of unsteady hydraulic models which would be required to determine rate of
rise of floodwater and durations.
Another commenter provided several specific recommendations regarding
actionable model criteria for the CISA including that the models be well-established in
practice; not extrapolate results; display information on uncertainty; are well-calibrated;
provide outputs that are understandable; and be evaluated via peer-review. The

commenter recommended that FEMA provide additional clarity as to what standard of
peer review would be considered efficacious when producing future flood risk models,
and that FEMA follow up with entities peer reviewing models to confirm that this
standard has actually been met. This commenter encouraged the use of a consistent and
accurate methodology for determining the FFRMS floodplain across the Federal
government. The commenter stated that where CISA data was not available, utilizing the
1 percent annual chance floodplain and the 0.2 percent annual chance floodplain would
be appropriate, as those are well understood and adopted for regulatory purposes under
the NFIP, as well as the mortgage and insurance industries broadly.
Another commenter stated the lack of transparency in the FFRMS floodplain
determination data raised concerns similar to concerns raised regarding proprietary tools
used in the implementation of FEMA's Risk Rating 2.0. The same commenter stated
proprietary tools would make it difficult to assess whether a CISA floodplain
determination was appropriate for local conditions for a specific action and stated
national-scale, one-size-fits-all tools would not be readily applicable to project sites in
every location, including rural states. The commenter requested FEMA commit to
bringing in State and local stakeholders to provide their perspectives.
FEMA Response: FEMA believes the information provided in the rulemaking
docket addresses the commenters’ concerns regarding how the agency will select,
evaluate, and update the data and methods that inform the CISA and account for
uncertainty and variability in climate projections. As explained above, the FFRMS CISA
State of the Science Report and FFRMS Job Aid provide the public with information on
the best available and actionable data for the CISA and the methodology the agency
intends to initially use to determine the FFRMS floodplain using the CISA. The FFRMS
CISA State of the Science Report and the Revised Guidelines provides details on how the
agency will determine the availability and actionability of data for the CISA. The

FFRMS Job Aid provides the methodology and process FEMA will use, based on those
resources, to determine the FFRMS floodplain.
As explained above, FEMA makes the determination for Step 1 of the 8-step
process, in coordination with applicants, and will work with State agencies, floodplain
managers, and other stakeholders during this process to best understand the on-theground realities. Pursuant to 44 CFR 9.11(d)(6), a more restrictive Federal, State, or
local standard will be used in lieu of the FFRMS. This includes the use of local CISA
data and methods that have been adopted by a community for use in floodplain
management, as long as such data result in a more restrictive standard. FEMA notes that
the agency did communicate information on the data and methodology to determine the
FFRMS floodplain to stakeholders and the public with this rulemaking by providing the
FFRMS CISA State of the Science Report and FFRMS Job Aid in the public docket.
FEMA will provide additional resources to SLTTs and the public and will offer technical
assistance regarding the FFRMS floodplain determination as part of the FFRMS
implementation. FEMA disagrees with the commenter that agencies choose to enforce
the most extreme flood events; the CISA is based on the best available and actionable
data, not the most extreme scenarios.
With respect to the comment suggesting that FEMA support a consistent and
accurate methodology for determining the FFRMS floodplain across the Federal
government, FEMA supports the development of interagency tools because such tools
enhance predictability and mitigate transaction costs associated with floodplain
determinations. FEMA has prioritized the use of such tools in its policy approach and
will initially implement the CISA using the FFRMS Job Aid. FEMA’s interagency
consultative role in the broader implementation of the FFRMS across the Federal
government, through the agency’s participation in the Flood Resilience IWG and the
FIFM-TF, helps ensure consistent and effective implementation. FEMA’s FFRMS policy

further provides details on how FEMA will coordinate with other agencies when
implementing actions in the same area as another Federal agency. See Section H, page 9.
At the same time, there is no requirement in the FFRMS or the Revised Guidelines for all
Federal agencies to select the same approach or to implement the CISA with the same
tools; the FFRMS is a resilience standard and is meant to be flexible.192 Regarding the
commenter’s question regarding which projections would be applicable for design life
and risk aversion of the structure, the FFRMS Job Aid Section 2.4.1 discusses service life
including in the context of critical actions.193 This information should resolve the
commenter’s question. FEMA notes that the agency’s proposed implementation of the
CISA does not include incorporating climate projection data into hydraulic models
(steady or unsteady).
FEMA appreciates the recommendations provided by another commenter on the
actionable model criteria for the CISA. FEMA is not relying on models for the CISA
implementation beyond the models already utilized to produce the agency’s regulatory
and non-regulatory products for the NFIP. Appendix H of the Revised Guidelines194 and
the FFRMS CISA State of the Science Report195 provide an overall framework for
assessment of data and models to determine available and actionable climate science.
FEMA agrees with this commenter that, where CISA data is not available and not
actionable, the agency will rely on the alternative approaches as detailed in FEMA’s
FFRMS policy. Section C.3 of FEMA’s FFRMS policy states that FEMA will determine
the FFRMS elevation and the FFRMS floodplain depending on the criticality of the
action. For non-critical actions, the FFRMS floodplain is the area that would be
inundated by the lower of the 0.2 percent annual chance flood or 2 feet of freeboard
above the BFE. For critical actions, the FFRMS floodplain is the area that would be
See Revised Guidelines, pg. 57.
See FFRMS Job Aid, pg. 14.
194 See Revised Guidelines, pgs. 16-17, 50-52.
195 See FFRMS CISA State of the Science Report, pgs. 7-8.
192
inundated by the higher of the 0.2 percent annual chance flood or 3 feet of freeboard
above the BFE. For locations where information about the elevation and/or extent of the
0.2 percent annual chance floodplain is not available, the FFRMS floodplain is 3 feet of
freeboard above the BFE. To clarify, the FVA relies on the 1 percent annual chance
floodplain but incorporates an additional measure of safety beyond the 1 percent annual
chance floodplain. If available 0.2 percent annual chance floodplain data is not available,
FEMA will utilize the appropriate FVA to determine the FFRMS floodplain and
elevation.
Finally, FEMA believes the interagency tools used for FFRMS implementation
have been transparent in nature. The tools FEMA will utilize to implement the FFRMS
are not proprietary. FEMA, as a co-chair of the Flood Resilience IWG, under the
National Climate Task Force, facilitated the publication of both the FFRMS Job Aid196
and FFRMS CISA State of the Science Report.197 The FFRMS Job Aid helps federal
agencies and their non-federal partners (including potential federal financial aid
recipients) conduct a screening to determine if a proposed federally funded action will be
located within an FFRMS floodplain, based on any of the three approaches in accordance
with Sec. 2(a)(1) of Executive Order 11988, as amended. FEMA will initially utilize the
FFRMS Job Aid to make these determinations, and this resource was posted in the public
docket of this rulemaking for transparency to the public. As explained above, FEMA
makes the determination for Step 1 of the 8-step process, in coordination with applicants,
and will work with State and local communities during the 8-step process. FEMA will

See https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-jobaid.pdf (last accessed Jan. 24, 2024) and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0004.
197 Available at https://www.whitehouse.gov/wp-content/uploads/2023/03/Federal-Flood-RiskManagement-Standard-Climate-Informed-Science-Approach-CISA-State-of-the-ScienceReport.pdf?trk=public_post_comment-text (last accessed Jan. 24, 2024), https://www.fema.gov/floodplainmanagement/intergovernmental/white-house-flood-resilience-interagency-working-group (last accessed
Jan. 24, 2024), and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0007.
accept local CISA data and methods that have been adopted by a community for use in
floodplain management, as long as such data result in a more restrictive standard and will
help further ensure local needs are met.
Comment: One commenter requested FEMA specify which NOAA sea level rise
(SLR) scenario the agency would consider as the minimum standard to apply the CISA to
HMA grant project benefit-cost analysis (BCA) and designs. The commenter also
requested FEMA specify under what conditions it would allow higher SLR scenarios to
be used, stating the lack of clarity would result in slowdowns and inconsistency in
application reviews across FEMA regions and projects. The commenter requested
FEMA clarify whether the agency would defer to applicant or State policies that may
incorporate higher projections and otherwise meet the criteria for the CISA.
FEMA Response: FEMA is not codifying the specific climate scenarios to be
used as part of the CISA analysis. As explained above, FEMA is relying on interagency
processes to select and evaluate the data and methods used to implement the FFRMS. In
the proposed rule, FEMA referred readers to the FFRMS Job Aid and the FFRMS CISA
State of the Science Report, which were posted to the public docket associated with this
rulemaking.198 FEMA has also posted the FFRMS Job Aid on its website199 and will
leverage this tool when implementing the FFRMS. Consistent with the FFRMS Job Aid,
FEMA will use the intermediate scenarios for non-critical actions and intermediate-high
scenarios for critical actions using the SLR data from NOAA.200
In response to the commenter’s concerns regarding the use of higher SLR
scenarios and whether FEMA would accept higher standards, 44 CFR 9.11(d)(6) provides
that a more restrictive Federal, State, or local standard will be used in lieu of the FFRMS.

See https://www.regulations.gov/document/FEMA-2023-0026-0004.
See https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-jobaid.pdf (last accessed Jan. 24, 2024).
200 FFRMS Job Aid, pgs. 20-21. NOAA viewer available at https://coast.noaa.gov/slr/ (last accessed Mar.
28, 2024).
198
Thus, if a more restrictive State or local standard relied on a higher SLR scenario, that
more restrictive standard would be used. FEMA notes the determination on the
information the applicant is using under part 9 has always been made by the agency and
thus, FEMA does not anticipate delays with projects as a result of the FFRMS
implementation.
Comment: A commenter stated that FEMA’s policy approach was not
straightforward, as the boundaries and elevations for both the FVA and 0.2PFA must be
identified for each project and then compared to establish the final floodplain but stated
there was little information on how those boundaries and elevations would be
determined. Similar to other commenters above, the commenter asked who would
conduct the analysis, what data would be used, and what ground-truthing if any would be
performed. The commenter stated this must be determined prior to FFRMS
implementation. This commenter stated CISA’s application was not understood nor was
it likely to be consistent given the significant leeway provided to the Regional
Administrators. The commenter requested FEMA explain how the agency would choose
the FFRMS approach it would take, what data the agency would rely on, and provide
publicly available maps depicting the regulated floodplain (whether that floodplain was
determined based on the 1 percent annual chance floodplain, the 0.2 percent annual
chance floodplain, or using the CISA, FVA, or any other methodology). The commenter
stated the FFRMS was otherwise premature, and FEMA should cease implementation
until these efforts were complete.
FEMA Response: FEMA understands the commenter’s concern that both the
FVA and 0.2PFA will be identified where the CISA is not available and/or actionable.
However, FEMA does not believe this analysis will be overly burdensome to the agency
or to applicants. FEMA has made, and will continue to make, floodplain determinations
partnering with applicants in the 8-step decision-making process. The FFRMS Job Aid

provides the methodology and process by which the FVA and 0.2PFA can be determined.
This document is publicly available on FEMA’s website and was posted to the public
docket with this rulemaking. Using the FFRMS Job Aid, FEMA can determine the
FFRMS floodplain relevant to a particular location within approximately 23 minutes.
FEMA disagrees with the commenter that the CISA’s application is not
understood nor likely to be consistent given the resources provided with this rulemaking
as detailed above. The FFRMS CISA State of the Science Report and the FFRMS Job
Aid help Federal agencies and the public better understand the CISA, the availability and
actionability of the CISA data, and how to determine the FFRMS floodplain using the
CISA, FVA, and the 0.2PFA. FEMA does not agree with the commenter that FFRMS
implementation, including the CISA, will result in inconsistency. FEMA does not
believe Regional Administrators are provided with a level of discretion to result in
inconsistent FFRMS implementation. Regional Administrators have historically had the
authority provided in 44 CFR 9.7, and FEMA is not changing their authority with this
rule.
FEMA notes that the agency explains how it will choose the FFRMS approach to
be taken in the FFRMS policy. Section C.3 of the FFRMS policy states FEMA will
determine the FFRMS elevation and the FFRMS floodplain depending on the criticality
of the action. For non-critical actions, where the CISA is not available, the FFRMS
floodplain is the area that would be inundated by the lower of the 0.2 percent annual
chance flood or 2 feet of freeboard above the BFE. For critical actions, where the CISA
is not available, the FFRMS floodplain is the area that would be inundated by the higher
of the 0.2 percent annual chance flood or 3 feet of freeboard above the BFE. For
locations where information about the elevation and/or extent of the 0.2 percent annual
chance floodplain is not available, the FFRMS floodplain is 3 feet of freeboard above the
BFE. To clarify, the FVA relies on the 1 percent annual chance floodplain but

incorporates an additional measure of safety beyond the 1 percent annual chance
floodplain. If available 0.2 percent annual chance floodplain data is not available, FEMA
will utilize the appropriate FVA to determine the FFRMS floodplain and elevation.
As explained above, FEMA will initially rely on the FFRMS CISA State of the
Science Report and the FFRMS Job Aid to implement the FFRMS. FEMA appreciates
the desire to have maps depicting the FFRMS floodplain and is coordinating across the
Federal government to develop additional tools beyond the FFRMS Job Aid to assist
agencies and stakeholders in determining the appropriate vertical flood elevation and
corresponding horizontal FFRMS floodplain. However, FEMA will initially rely on the
FFRMS Job Aid methodology to determine the FFRMS floodplain. Given the agency
made resources publicly available on this rulemaking docket to determine the FFRMS
floodplain, FEMA does not believe delaying the FFRMS implementation is needed.
Flood risk is not static and will evolve over time due to changing conditions. Particularly
in the context of Federal grantmaking, FEMA does not believe it would be appropriate to
delay FFRMS implementation pending a comprehensive FFRMS floodplain mapping of
the United States. The decision to proceed in this matter is also consistent with FEMA’s
historical practice of using best available information in the 8-step process, which also
resulted in some degree of uncertainty as part of the project planning and application
process.
Comment: A commenter noted the key language of “best available” and
“actionable” in the definition of the CISA as determining the reliability, usability, and
overall credibility of the final floodplain identification. The commenter noted FEMA’s
consistent use of the terminology and the definitions found in Appendix H of the Revised
Guidelines. The commenter agreed with the terminology but recommended the inclusion
of granularity, stating that climate-informed flood risk granular data is property-specific
data. The commenter stated granular data has three significant characteristics: structure

specific identifications, first floor height assessments, and high-resolution digital
elevation model (DEM) data. To reliably assess future flood risk, the commenter stated
FEMA must be able to both identify the property itself and the specific structure(s) on
that property that require separate assessments. The commenter wrote that the
identification requires geospatial data that can reliably assess the geographical boundaries
of a property and its structure(s), and without this, risk assessments would not reflect the
true risk to the structure. The commenter went on to explain how these assessments
involved models based on underlying data inputs that reliably determine the first floor
height elevation relative to sea level and ground level and require the use of DEM. The
commenter stated the key to reliability is the use of high-resolution DEM, the level of
granularity necessary to permit reliable assessment of first floor height elevation and
related footprint data. The commenter recommended FEMA advocate for the addition of
“granular” as a necessary characteristic for “best available, actionable science.”
The same commenter stated that FEMA’s flexible approach would likely facilitate
the uptake of critical forward-looking climate and flood assessment methodologies and
where those techniques and solutions needed time to develop, still accurately account for
flood risk through proven approaches. The commenter stated that while a forward
looking, climate-informed approach would be the best framework for understanding
flood and other natural hazard risk in the future, not every community, builder, or
developer is currently equipped to understand and account for that risk. As building the
knowledge base would take time, the commenter recommended use of the waterfall
approach proposed by FEMA’s policy allowing the FFRMS floodplain to be determined
using the FVA or 0.2PFA. The commenter encouraged FEMA to depict the 0.2 percent
annual chance floodplain on maps consistent with the requirements of the Biggert Waters
Flood Insurance Reform Act of 2012 (BW-12).

FEMA Response: FEMA appreciates the commenter’s emphasis on the
importance of best available, actionable science to the CISA. FEMA agrees that a
determination of the location of an action and site-specific details of the action that are
needed for the floodplain determination and minimization of impacts requires a variety of
granular data. However, all of the science and data used to define the floodplain does not
necessarily need to be granular to be actionable. For example, regional sea level rise data
is considered actionable best available science in the FFRMS CISA State of the Science
Report but would not satisfy the definition of granular data provided by the commenter.
FEMA will continue to use granular data, where appropriate, such as detailed digital
elevation models to determine floodplain extents and first flood elevations for structures
that are part of Federal actions. FEMA will further consider the commenter’s request to
incorporate granularity through the use of structure-specific identifications, first floor
height assessments, and high-resolution digital elevation model (DEM) data as part of the
agency’s role in the IWG.
FEMA agrees with the commenter that, given that the best available data is not
available and/or actionable in all locations, both FVA and 0.2PFA should be leveraged to
determine the FFRMS floodplain. FEMA also agrees it is important to depict the 0.2
percent annual chance floodplain on community maps consistent with the requirements of
BW-12.
Comment: A commenter asked whether the approaches in the FFRMS policy
should be used to develop FIRMs or FIS. The commenter stated the methods listed to
develop the floodplain should only apply to those actions listed in the Applicability
section of the FFRMS policy.
FEMA Response: The approaches listed in section C of FEMA’s FFRMS policy
document for determining the FFRMS floodplain are not used to develop FIRMs or FIS.
FIRMs and FIS are a starting point for the floodplain determination under the 8-step

process. The approaches listed in section C of the policy are only applicable to the
actions detailed in the applicability section of FEMA’s FFRMS policy.
Comment: Two commenters stated that FEMA’s 2016 proposed rule indicated
the use of CISA was not appropriate and stated FEMA’s current reliance on CISA was
unsubstantiated. The commenters noted an article that expressed concerns with climate
science201 and cited statements in the FFRMS CISA State of the Science Report as
evidence that attempts to apply the CISA to set flood risk management standards would
be subjective. Both commenters requested transparency and adherence to the principles
of replicability and independent peer review if FEMA utilizes the CISA. One of the
commenters stated FEMA must adhere to a specific set of criteria to clarify the standard
and that there must be metrics. The commenters stated that the other approaches
provided numerical targets that define what success shall be. Both commenters stated
that if FEMA could not provide decision criteria to be applied in the CISA approach, the
agency should eliminate it as a standard.
FEMA Response: Since the introduction of the CISA in 2015, additional data has
become available to better inform CISA. The FFRMS CISA State of the Science Report
provides a recommendation on available and actionable CISA data.202 Many of the
concerns expressed by the commenters are further addressed in that report and explain
why the CISA data is not actionable in all locations. FEMA disagrees with the
See Jesse M. Kennan, “A climate intelligence arms race in financial markets,” Science 365 (6459), pp.
1240-1243, abstract available at https://www.science.org/doi/10.1126/science.aay8442 (last accessed Mar.
21, 2024).
202 The FFRMS CISA State of the Science Report identifies the latest interagency Federal guidance for
regionally-based SLR projections as available and actionable by recommending that all agencies should use
these data as part of a CISA approach. At pg. 22, the Report states “Federal agencies should apply this
latest interagency Federal guidance for regionally-based SLR projections. Scenarios and time horizons
should use a consistent national approach based on risk tolerance and criticality.” However, the Report
also warns against using the simplified approach with SLR in areas subject to runup and overtopping on pg.
28 “Notably, areas subject to runup and overtopping can be very sensitive to changes in water level
(including due to SLR) and the variability of the slope—so within a CISA implementation, these areas
should be treated with appropriate analysis and not simple linear addition of flooding components.” Based
on these guidelines, the FFRMS Job Aid establishes the use of simplified CISA in specific areas, namely in
some coastal environments, specifically along low-lying coastal shorelines on the Atlantic and Gulf Coasts.
See FFRMS Job Aid, pg. 10.
commenters’ suggestion that certain statements in the FFRMS CISA State of the Science
Report regarding multiple scenarios and hybrid approaches that could be used to
determine the CISA serve as evidence that the CISA is too subjective. The CISA
guidance in Appendix H of the Revised Guidelines and the FFRMS CISA State of the
Science Report provide broad guidance for where the CISA might be available and
actionable with sufficient expertise, local data, and project-specific analysis. However,
FEMA prioritized the type and criticality of the action involved, the availability and
actionability of the data, and equity concerns, and determined that applying the CISA
through complex expert project-specific modeling was not appropriate for FEMA given
the agency’s role in helping people recover from disasters in an expedited manner and to
reduce the subjectivity concerns of the commenters stated above. FEMA instead decided
to use consensus interagency approaches that were readily accessible and do not require
project specific CISA modeling found in the FFRMS Job Aid.
The FFRMS Job Aid details the underlying methodology used to determine the
FFRMS floodplain, including using the CISA, and FEMA believes that resource provides
sufficient transparency and replicability to stakeholders and the public. FEMA will
initially use the FFRMS Job Aid to make the FFRMS floodplain determination. FEMA
is coordinating across the federal government to develop additional tools beyond the
FFRMS Job Aid to assist agencies and stakeholders in determining the appropriate
vertical flood elevation and corresponding horizontal FFRMS floodplain.
FEMA does not believe that the use of CISA results in uncertainty in the 8-step
process. The FFRMS Job Aid details the underlying methodology used to determine the
FFRMS floodplain, including using the CISA, and FEMA believes that resource provides
sufficient transparency and replicability to stakeholders and the public. The FFRMS
CISA State of the Science Report, upon which the FFRMS Job Aid is based, was
reviewed by subject-matter experts across the members of the Flood Resilience IWG,

including staff from NOAA’s National Weather Service, the USGS’s Water Resources
Mission Area and Coastal/Marine Hazards and Resources Program, FEMA’s National
Flood Hazard Mapping Program, and other members of the FFRMS Science Subgroup.203
FEMA agrees with one of the commenters that the FVA and 0.2PFA provide
some additional clarity to stakeholders because the 1 percent annual chance and 0.2
annual chance floodplains are more commonly used and depicted on FEMA regulatory
and non-regulatory mapping products. FEMA’s FFRMS policy provides for the use of
these approaches where the CISA data is not available or not actionable. However,
FEMA does not believe that the CISA must be eliminated simply because the FVA and
0.2PFA are more commonly understood. The FFRMS CISA State of the Science Report
and the FFRMS Job Aid are resources the public can use to better understand the CISA
and how FEMA will implement it. These resources provide the requisite decision criteria
for how the CISA will be determined by FEMA in the initial FFRMS implementation.
FEMA will provide additional resources and technical assistance to SLTTs and the public
regarding the FFRMS floodplain determination as part of the FFRMS implementation to
help further educate stakeholders.
3. Use of State and/or Local CISA Data
Several commenters requested FEMA consider local CISA data in making the
CISA floodplain determination.
Comments: Some commenters requested the use of specific State and/or local
data. One commenter stated the use of locally available CISA data and methods would
provide opportunities for underserved communities to provide critical local input. One
commenter recommended FEMA develop a framework for evaluating whether local
CISA data is technically credible and appropriate. One commenter stated if State, Tribal,
territorial, or local data resulted in CISA-based elevation standards that met or exceeded

See FFRMS CISA State of the Science Report at i.

standards developed using Federal data, then FEMA should apply the higher, locally
available standards, if reasonable. The commenter stated Federal data should act as a
floor for CISA calculation under the FFRMS.
Another commenter stated FEMA should accept local data where it is accurate
and sufficiently protective to maximize the effectiveness of the rule. The same
commenter requested FEMA consider the potential inequities in access to CISA.
Another commenter recommended FEMA develop a framework for evaluating whether
local CISA data is technically credible and appropriate.
In addition to requesting FEMA accept local CISA data, one commenter sought
additional details on the FEMA FFRMS CISA data development to avoid developing
duplicative or conflicting data. The commenter stated FEMA’s Federal floodplain
management tools (i.e., FIS and FIRMs) are used for applications beyond their originally
intended purpose, including comprehensive planning and resilience planning. The
commenter encouraged FEMA to consider how its CISA FFRMS data and tools could be
used for comprehensive flood risk planning at multiple levels of government when
developing the products. The commenter also encouraged FEMA to coordinate with
stakeholders when developing its CISA data and methods. Two commenters agreed that
FEMA should further engage with stakeholders regarding CISA data and methods.
FEMA Response: FEMA agrees with the commenter that Federal data should act
as a floor for the CISA calculations under the FFRMS. SLTTs can provide input into the
determination. Pursuant to 44 CFR 9.11(d)(6), a more restrictive Federal, State, or local
standard will be used. This includes the use of local CISA data and methods that have
been adopted by a community for use in floodplain management, as long as such data
results in a more restrictive standard.
FEMA notes the FFRMS Job Aid is a resource to help Federal agencies and their
non-Federal partners (including potential federal financial aid recipients) conduct a

screening to determine if a proposed federally funded action will be located within an
FFRMS floodplain, based on the CISA, FVA, or 0.2PFA, in accordance with Sec. 2(a)(1)
of Executive Order 11988, as amended. FEMA will continue to collaborate across the
Federal government to develop tools to facilitate the implementation of CISA.
Regarding the framework for accepting local CISA data, FEMA will continue to
rely on 44 CFR 9.7, FEMA Policy 104-008-2: Guidance on the Use of Available Flood
Hazard Information,204 and the Revised Guidelines in determining whether CISA and
flood hazard data is available and actionable. FEMA is coordinating across the federal
government to develop additional tools to assist agencies and stakeholders in determining
the appropriate vertical flood elevation and corresponding horizontal FFRMS floodplain.
FEMA’s policy approach considers situations where CISA data is not available.
Specifically, the policy approach detailed in the FFRMS Policy provides for the use of
the FVA or 0.2PFA depending on the criticality of the action and data availability.
FEMA believes the agency’s policy approach will reduce concerns with underbuilding or
overbuilding and thus provide a more cost-effective, equitable approach.
As previously explained, FEMA is relying on interagency processes to select and
evaluate the data and methods used. Appendix H of the Revised Guidelines205 provides
an overview of the available and actionable data for CISA, which is the basis for these
interagency supporting tools. The FFRMS CISA State of the Science Report206 provides
a review and update of the best-available, actionable science that can support application
of the Climate-Informed Science Approach (CISA), reflecting science and technology

Available at https://www.fema.gov/sites/default/files/202004/Available_Flood_Hazard_Information_Policy_104-008-2.pdf (last accessed Jan. 24, 2024).
205 Available at https://www.fema.gov/sites/default/files/documents/fema_implementing-guidelinesEO11988-13690_10082015.pdf (last accessed Jan. 24, 2024).
206 See https://www.whitehouse.gov/wp-content/uploads/2023/03/Federal-Flood-Risk-ManagementStandard-Climate-Informed-Science-Approach-CISA-State-of-the-ScienceReport.pdf?trk=public_post_comment-text (last accessed Dec. 14, 20 last accessed Jan. 24, 202423) and
also posted to the public docket with this rulemaking at https://www.regulations.gov/document/FEMA2023-0026-0007.
advancements made since Executive Order 13690 was issued in 2015.207 FEMA will rely
on these and future interagency publications for CISA data. The Revised Guidelines also
provide an explanation of how the FFRMS will be updated in the future.
FEMA appreciates the importance of comprehensive flood risk planning and is
developing additional resources for communities and the public to better understand their
current and future flood risks. For example, FEMA’s Future of Flood Risk Data (FFRD)
initiative will provide a more comprehensive picture of the country’s flood hazards and
risks by leveraging new technologies to include more efficient, accurate, and consistent
flood risk information across the nation.208 These resources can be used by communities
for planning purposes. FEMA will continue to engage with SLTTs and the public on the
development and enhancement of flood risk resources, including FFRMS implementation
resources for the CISA, FVA, and 0.2PFA.
Comment: One commenter requested FEMA provide training resources to help
local communities, practitioners, and property owners understand the impact of the rule.
FEMA Response: FEMA values additional input from SLTT partners and the
public in the 8-step process. FEMA will provide additional resources to SLTTs and the
public as part of the FFRMS implementation, and FEMA’s regional offices will provide
technical assistance to applicants for FEMA programs.
4. Other Data Concerns
Comment: One commenter stated concerns with the language in proposed §
9.7(b)(1), which stated that FEMA shall obtain enough information so that it can fulfill
the requirements in part 9 to (i) avoid Federal action in floodplain and wetland locations
unless they are the only practicable alternatives and (ii) Minimize harm to and within
floodplains and wetlands). The commenter stated that the language was too vague to

207
80 FR 6425 (Feb. 4, 2015).
See https://www.fema.gov/fact-sheet/future-flood-risk-data-ffrd (last accessed Mar. 26, 2024).

have any meaning, as “enough information” did not inform the agency or the public of
the requirement. The commenter recommended some identifiable minimum standard be
provided.
FEMA Response: FEMA disagrees that the proposed language is unduly vague.
In context, paragraph (b) provides that FEMA will make the determination as part of the
8-step process and provides a list of the types of information FEMA will use to make this
determination including the current and future flooding characteristics detailed in
paragraph (b)(3). Not all of this information is required, as the information needed to
make the floodplain or wetland determination is action-specific and subject to data
availability.
Comment: One commenter stated costs would increase for engineering and
planning around Federally funded projects when implementing FFRMS, particularly in
areas where the 0.2 percent floodplain is not currently mapped.
FEMA Response: FEMA appreciates the commenter’s concerns regarding costs
but disagrees that engineering and planning costs will necessarily increase for actions
subject to the FFRMS and particularly for those in areas where the 0.2 percent annual
chance floodplain is not currently mapped. FEMA will initially implement the FFRMS
using the FFRMS Job Aid to determine the FFRMS floodplain and stakeholders can also
leverage this tool to determine the CISA, FVA, and 0.2PFA where such data is available.
As FEMA’s FFRMS policy states, where the CISA data is not actionable and not
available and information about the elevation and/or extent of the 0.2 percent annual
chance floodplain is also not available, the FFRMS floodplain is the FVA. By
considering data availability in the FFRMS floodplain determination and providing
resources to help stakeholders understand the FFRMS floodplain determination, FEMA
believes the commenter’s concerns are addressed.

Further, FEMA considered the costs and benefits associated with this rule,
including the overall increased costs of FEMA projects, in the regulatory impact analysis
provided on the docket.209 FEMA believes that the benefits of preventing property
damage, protecting Federal investments, and potentially saving lives justify the costs of
the rule. These benefits are a result of the improved protection of structures and facilities
due to increased elevation and floodproofing standards in FEMA’s implementation of the
FFRMS. This rule will help to ensure that Federal investments are better protected from
flood damage, and that the natural and beneficial values of floodplains are
preserved. FEMA notes any increased costs are generally eligible for funding under
FEMA’s assistance programs subject to cost share requirements.
FEMA’s Regulatory Mapping Products
Comments: Some commenters requested clarification on the use of current
FEMA regulatory products in the FFRMS floodplain determination. Commenters
provided input asking FEMA to improve those maps for the FFRMS floodplain
determination and other purposes. One commenter requested FEMA update the agency’s
floodplain mapping techniques and incorporate future risk into the mapping. The
commenter recommended FEMA incorporate the recommendations by the TMAC for
significant changes to FEMA’s floodplain mapping techniques. The commenter
requested all agencies collaborate and align around definitions for floodplain mapping
and share expertise to develop CISA floodplain definition methods that are consistent
with one another. Such consistency would be easier and assist applicants in adhering to
agency regulations. The commenter further recommended the MitFLG work toward
common definitions and delineation of floodplains to enable better interagency
collaboration and coordination on issues related to flood risk reduction. The commenter
also stated the need to improve and update FEMA’s regulatory mapping products,

See https://www.regulations.gov/document/FEMA-2023-0026-0013.

indicating these products were essential for community-level planning, yielding enhanced
resilience. The commenter stated flood maps were essential underpinning to drive wise
land use decisions, including where not to develop and where to conserve lands that
might aid in flood risk reduction.
Another commenter stated the FFRMS did not consider FIRM effective dates in
communities where FIRMs are currently being updated and requested clarification for
applying the CISA to those communities or applicable use of effective flood maps. One
commenter noted FEMA’s policy approach to leverage the 0.2PFA or FVA where CISA
data is not available and not actionable and stated that approach was not without
challenges given FEMA’s regulatory and other mapping products used in the analysis of
those approaches were outdated and likely to remain so for the foreseeable future.
A commenter recommended Federal agencies continue relying on FEMA flood
risk data and tools for future implementation of a climate-informed floodplain. The
commenter noted FEMA’s investment on flood engineering studies and flood mapping
over the past half century and that States and localities nationwide adopted FEMA flood
map data for flood mitigation, community development, and many other purposes. The
commenter stated that abandoning current Federal efforts on flood mapping and adopting
an alternative flood map dataset would waste Federal investments on flood engineering
studies and flood inundation mapping. Another commenter stated FEMA would have the
primary responsibility to prepare the data to support the CISA through its existing
mapping activities. The commenter noted other FEMA mapping priorities through the
agency’s RiskMAP program and encouraged FEMA to secure and allocate sufficient
resources and fully utilize the Cooperating Technical Partners program to support the
CISA and related mapping activities.
FEMA Response: FEMA appreciates the commenters’ interest in the agency’s
flood risk mapping efforts. FEMA is considering the TMAC recommendations

associated with future flood conditions mapping and intends to incorporate future flood
conditions into mapping products as practicable.210 FEMA’s interagency consultative
role in the broader implementation of the FFRMS across the Federal government,
through the agency’s participation in the IWG and the FIFM-TF helps ensure consistent
and effective implementation. FEMA will continue to work in an interagency manner in
conjunction with the Water Resources Council, the MitFLG, and the FIFM-TF to develop
tools to facilitate the implementation of CISA. FEMA agrees that the agency’s
regulatory mapping products support community-level planning that enhances resilience
and help drive wise land use decisions.
FEMA understand other commenters’ concerns regarding FIRM effective dates
and the age of FIRMs in some communities that may no longer reflect current flood risk.
FEMA plans to continue updating regulatory mapping products to help address the
commenter’s concerns regarding stale maps. However, floodplain determinations under
part 9 are not solely predicated on existing FIRMs and commenters’ concerns about
potential challenges with the FVA and 0.2PFA based on the age of existing FIRMs is
thus unwarranted. As explained in the NPRM, FEMA will use best available information
which may include information that is non-regulatory or FEMA preliminary flood hazard
data. To be designated as the best available information, it must be at least as restrictive
as information provided by effective FIRMs. Given the best available information policy
FEMA adopted,211 the agency will be continuously improving the data associated with
the floodplain determination. FEMA notes pursuant to 44 CFR 9.11(d)(6), a more
restrictive Federal, State, or local standard will be used in lieu of the FFRMS.
Communities can leverage their own data, including the use of local CISA data and

See TMAC 2021 Annual Report, Chapter 3 Future Conditions available at
https://www.fema.gov/sites/default/files/documents/fema_2021-technical-mapping-advisory-annualreport.pdf (last accessed Apr. 1, 2024).
211 FEMA Policy 104-0008-2: Guidance on the use of available flood hazard information, available at
https://www.fema.gov/sites/default/files/2020-04/Available_Flood_Hazard_Information_Policy_104-0082.pdf (last accessed Mar. 27, 2024).
methods that have been adopted by a community for use in floodplain management, as
long as such data results in a more restrictive standard. FEMA believes these flexibilities
address the second commenter’s concerns to ensure the best available flood risk
information is being considered in the 8-step analysis.
FEMA notes that, as explained above, the agency is not abandoning current
efforts on flood mapping but rather is continuing to update regulatory maps. FEMA is
not adopting an alternative flood map dataset as part of this rulemaking. Regulatory
mapping products are part of the NFIP’s regulatory process and not impacted by this
rulemaking. The agency’s investments in regulatory mapping products are not being
wasted by this effort and will continue in support of the NFIP’s regulatory process, as
well as to inform the public on flood risk. FEMA further appreciates the commenter’s
concern regarding sufficient resources and will continue to utilize the Cooperating
Technical Partners program to support the agency’s mapping efforts.
Comment: A commenter wrote their support for modernizing the data and
approaches used to understand and anticipate flood risks, stating the use of best available
data, technology, and modeling would yield better baseline data to account for climateinduced increases in precipitation and inundation. The commenter noted that data from
FIRMs in some areas can be 40 years old. The commenter noted that FEMA predicted
more accurate maps would expand the floodplain but stated adjustments were needed to
ensure the expanded mapping does not further hinder Federal, State, and local efforts to
restore natural and beneficial floodplain functions.
FEMA Response: FEMA does not anticipate that more accurate mapping of
current flood risks will necessarily expand the floodplain. FEMA’s experience when
revising existing regulatory floodplains is that the overall floodplain area does not
generally increase, as more accurate maps can also mean areas are no longer designated
as being within the floodplain. While revised maps reflect updated data on inland

hydrology, coastal storms, and sea levels, they focus on current conditions and do not
include projections of future changes. FEMA does anticipate the FFRMS, when
implemented, will generally expand the floodplain area for actions subject to the FFRMS
under part 9. FEMA agrees with the commenter that leveraging the best available
information in making the floodplain determination can assist in accounting for climateinduced increases in precipitation and inundation. As explained above, FEMA plans to
continue updating regulatory mapping products to address the commenter’s concerns
with dated data; however, floodplain determinations under part 9 are not solely
predicated on existing FIRMs. FEMA will use best available information which may
include information that is non-regulatory or FEMA preliminary flood hazard data. To
be designated as the best available information, it must be at least as restrictive as
information provided by effective FIRMs. FEMA does not believe implementation of the
FFRMS will hinder restoration of natural and beneficial floodplain functions. Rather, it
is also the policy of FEMA to restore and preserve the natural and beneficial values
served by floodplains in part 9.
Comment: One commenter requested clarification on how allowing the use of
other data beyond the data found in FIRMs or FIS would affect the CLOMR, LOMR, No
Adverse Effect, No Rise processes.
FEMA Response: This rulemaking does not have any impact on the current
CLOMR, LOMR, or no rise processes. FEMA does not have a no adverse effect process.
Interagency Tools
Comments: Some commenters requested additional information regarding the
interagency tools FEMA will utilize to depict the FFRMS floodplain. A commenter
wrote in support of developing a decision support tool to facilitate the implementation of
the FFRMS, requesting the tool be narrowly focused, integrating and avoiding
duplication of existing Federal tools and data portals. The commenter also requested the

tool incorporate local data wherever possible and that FEMA use the tool to highlight
data gaps preventing the wider use of CISA to encourage development of such data in
those areas. Another commenter wrote requesting FEMA work closely with NOAA, the
White House Office of Science and Technology Policy, and other appropriate
departments to ensure that States, communities, and the public can readily access
information about what data sources meet the criteria for climate-informed science and
are considered current and credible at a point in time. Two commenters noted
appreciation for FEMA’s work with the Flood Resilience IWG on developing an online
mapping tool to assist in determining the FFRMS floodplain, including the CISA and
requested prioritizing these efforts.
FEMA Response: FEMA appreciates the commenters’ support of the agency’s
interagency collaboration and is continuing to work with IWG to support the FFRMS and
CISA implementation. FEMA also appreciates the commenters’ statements on
developing additional tools to support the FFRMS implementation across the Federal
government. FEMA agrees with the commenter that a tool to facilitate FFRMS
implementation is an important component to the success of the FFRMS, and the agency
published on the public docket with this rulemaking the FFRMS Job Aid as an initial
resource. FEMA anticipates leveraging the FFRMS Job Aid for determining the FFRMS
floodplain when the final rule is implemented. FEMA will continue to collaborate across
the Federal government to develop tools to facilitate the implementation of CISA and the
FFRMS. The IWG recently released a beta version of the Federal Flood Standard
Support Tool (FFSST), a novel interactive, map-based tool that incorporates new data to
help users identify if a Federally funded project is in the FFRMS floodplain, for
comment.212 FEMA will also continue to rely on 44 CFR 9.7, FEMA Policy 104-008-2:

89 FR 25674 (Apr. 11, 2024).

Guidance on the Use of Available Flood Hazard Information,213 and the Revised
Guidelines in determining whether CISA and flood hazard data is available and
actionable.
Flooding Characteristics
Comment: One commenter requested FEMA retain the requirement that Regional
Administrators identify additional flooding characteristics in the locations of proposed
actions. The commenter noted FEMA’s changes in 44 CFR 9.7(b)(3) from “shall” to
“may” identify such flooding characteristics, “as appropriate” and requested “shall” be
retained, as the flooding characteristics identified included important factors to consider
when minimizing harm to floodplains and wetlands. The commenter stated there was no
adequate rationale for allowing the Regional Administrator to ignore any or all of the
flooding characteristics. The commenter also requested FEMA include “evacuation and
migration corridors for wildlife, including threatened and endangered wildlife” in the list
of flooding characteristics.
FEMA Response: FEMA appreciates the commenter’s concerns but does not
believe this language change is a change impacting how FEMA will review the flooding
characteristics. Rather, the edit from “shall” to “may” is a clarifying edit. As explained
in the preamble to the NPRM, the term “shall” suggests a mandatory requirement for the
Regional Administrator to identify all of the additional flooding characteristics listed, yet
the current qualifying “as appropriate” language suggests the identification was not
mandatory. FEMA's current practices do not mandate a review of each of the flooding
characteristics but rather only those that are appropriate. FEMA updated this language to
reflect the Regional Administrator’s discretion in identifying the appropriate flooding
characteristics consistent with current practices.

Available at https://www.fema.gov/sites/default/files/202004/Available_Flood_Hazard_Information_Policy_104-008-2.pdf (last accessed Jan. 24, 2024).
FEMA also appreciates the importance of wildlife and the commenter’s concerns
about their habitats and evacuation and migration corridors; however, wildlife concerns
are currently part of the flooding characteristics considered when determining the
floodplain. The definition of “natural and beneficial values of floodplains and wetlands”
addresses wildlife considerations, and FEMA does not believe the additional language
proposed by the commenter is required to ensure this analysis.
Comment: Another commenter requested FEMA give local communities a voice
in the method used to determine the appropriate vertical flood elevation stating Federal
agencies may not be familiar with the local conditions. The commenter gave an example
of areas with flash floods requiring an appropriately short rainfall interval be evaluated to
avoid missing the storm peak.
FEMA Response: FEMA has and will continue to consider flooding
characteristics such as those listed by the commenter consistent with § 9.7. FEMA notes
that communities provide input into the floodplain determination for part 9 and the
agency coordinates with applicants and State and local officials as appropriate throughout
the 8-step process. As explained above, pursuant to 44 CFR 9.11(d)(6), a more restrictive
Federal, State, or local standard will be used. This includes the use of local CISA data
and methods that have been adopted by a community for use in floodplain management,
as long as such data results in a more restrictive standard. Projects subject to the FFRMS
will continue to be designed to meet local needs as appropriate.
Best Available Information
Comment: Four commenters requested FEMA recognize the value of Indigenous
Knowledge and Tribal resources in the 8-step process. One commenter supported the
proposed range of data sources to ensure FEMA relies on the best available information
when determining flood risk but requested FEMA incorporate Indigenous Knowledge
when considering best available information for determining flood risk. The commenter

noted the Biden Administration’s guidance to Federal agencies to increase reliance on
Indigenous Knowledge to inform Federal decision-making and recommended FEMA
incorporate the use of such information in the final rule. Specifically, the commenter
requested FEMA revise § 9.7(c)(3)(ix) to read “State, Regional, and Tribal Agencies or
governing bodies,” add a new § 9.7(c)(3)(xi) to identify Indigenous Knowledge as
another source of high-quality information and seek opportunities for engagement and
promotion of best practices to include Indigenous Knowledge in FEMA decision making.
A second commenter provided similar feedback, supporting the expanded inclusion of
diverse data sources and requesting FEMA integrate Indigenous Knowledge into the final
rule while also continuing to collaborate with Tribal Nations and Indigenous Peoples to
incorporate Indigenous Knowledge into FEMA policies. A third commenter supportive
of incorporating Indigenous Knowledge into the 8-step process recommended the final
rule direct FEMA to seek input from local Indigenous communities when developing
alternatives to an action and assessing impacts. This commenter noted that these
communities may have unique, proven methods for reducing flood risk and incorporating
this knowledge would recognize Indigenous connections to the land and help produce
better-informed decisions.
Another commenter requested FEMA align with States and Tribes on data
practices. Consistent with other commenters above, this commenter requested FEMA
consider State, Tribal, territorial, or local CISA-based elevation standards data that met or
exceeded standards developed using Federal data. The commenter stated FEMA should
apply the higher, locally-available standards if reasonable. The commenter provided an
example of State SLR guidance using State data, requesting that FEMA allow us of this
data so long as it met or exceeded the Federal data. The commenter stated that Federal
data should act as a floor for CISA calculation under the FFRMS and that if reasonable,
locally available data meets or exceeds the floor set by Federal data, then it should be

accepted for implementation consistent with FEMA’s proposed approach to leverage the
best available data to inform flood risk. The commenter noted the incorporation of local
data and methods can provide opportunities to achieve higher resolution data and indepth understanding of contextual climate impacts. The commenter requested FEMA
encourage intergovernmental and interstate collaboration to share and improve best
practices for underlying local data collection, including agency guidance on expanding
locally available data.
FEMA Response: As one commenter stated, President Biden issued Federal
government-wide guidance on recognizing and including Indigenous Knowledge in
Federal research, policy, and decision making.214 FEMA agrees with the commenters on
the importance of Indigenous Knowledge in the 8-step process. FEMA agrees with the
commenter to ensure Tribes are specifically incorporated into § 9.7(c)(3)(ix) and is
updating this final rule to state, “Agencies of State, Regional, and Indian Tribal
Governments.” This edit will ensure consideration of Indian Tribal government data in
the floodplain determination. FEMA believes the current language in § 9.7(c)(3)(x)
regarding local sources covers those Tribes that are not considered to be an Indian Tribal
government under 42 U.S.C. 5122(6).
FEMA supports the inclusion of Tribal and Indigenous knowledge into the
FFRMS process. As requested by the second commenter, FEMA is integrating
Indigenous Knowledge into the FFRMS policy accompanying this rule. The agency will
collaborate with Tribal Nations and Indigenous Peoples to incorporate Indigenous
Knowledge into FEMA policies consistent with the guidance referenced above. FEMA
further agrees with the third commenter that local Indigenous communities may have
methods for reducing flood risk that recognize Indigenous connections to the land and

See “Implementation of Guidance for Federal Departments and Agencies on Indigenous Knowledge,”
Nov. 30, 2022, found at https://www.whitehouse.gov/ceq/news-updates/2022/12/01/white-house-releasesfirst-of-a-kind-indigenous-knowledge-guidance-for-federal-agencies/ (last accessed Jan. 24, 2024).
help produce better-informed decisions. To ensure input from local communities, FEMA
follows the process for early and final public notices in the 8-step process. See §§
9.8(c)(4) and 9.12. The current regulatory text incorporates notice to Tribes when effects
may occur on Tribal lands in the early public notice process. See § 9.8(c)(4)(ii). The
final public notice includes notification to any entity that received early public notice.
See § 9.12(a). These notifications give Tribal communities the ability to provide input on
alternatives and impacts in the 8-step process. This ensures consideration of Tribal and
Indigenous Peoples throughout the 8-step process.
Finally, FEMA agrees with the fourth commenter that Federal data should act as a
floor for CISA calculations under the FFRMS. FEMA will apply higher, locally
available standards consistent with § 9.11(d)(6) that requires a more restrictive Federal,
State, or local standard be used. This includes the use of local CISA data and methods
that have been adopted by a community for use in floodplain management, as long as
such data results in a more restrictive standard. FEMA agrees with the commenter that
locally available data can provide valuable input into the area’s climate impacts and will
leverage those higher standards adopted by communities. FEMA values additional input
from SLTT partners and the public in the 8-step process and will continue to engage by
providing additional resources and technical assistance as the FFRMS is implemented.
Comment: One commenter requested FEMA include examples of “other sources”
in §9.7(c)(iii).
FEMA Response: FEMA provides a list of other sources in § 9.7(c)(3)(i) – (x) of
this final rule. As explained above, the agency will provide additional resources and
technical assistance to SLTTs and the public as part of the FFRMS implementation.
Other Data Concerns
Comment: One commenter requested FEMA provide additional guidance on how
to identify the appropriate lifecycle for a proposed action that uses CISA to determine the

FFRMS floodplain. The commenter noted that FEMA used a default 50-year lifecycle
analysis (in the regulatory impact analysis) and stated that would not be appropriate for
all actions. The commenter requested FEMA provide information on how the 50-year
lifecycle timeline was determined, as well as guidelines on how to determine the
appropriate lifecycle on a case-by-case basis.
FEMA Response: FEMA’s regulatory impact analysis was based on a report
defaulting to a 50-year lifecycle, but FEMA intends to determine the appropriate service
life on a case-by-case basis for each action. The FFRMS Job Aid provides additional
information on service life and how FEMA will make those individual determinations.215
J. FFRMS Implementation
FEMA received several comments regarding implementation of the FFRMS.
Commenters raised general process concerns with compliance with and enforcement of
the FFRMS, and costs and delays with implementing the FFRMS. Commenters also
inquired as to how FEMA would coordinate with other Federal agencies when
implementing the FFRMS, how FEMA would effectively complete outreach to ensure
effective implementation of the FFRMS, and how FEMA would resolve environmental
justice concerns.
1.. Generally
Comment: A commenter stated raising individual properties or a group of
properties could not be done without considering potential for impounding water on
neighboring properties and roadways. The commenter recommended a holistic approach
with local land use agencies, municipalities, and DOTs that identify the best path forward
for a roadway corridor.
FEMA Response: FEMA appreciates the commenter’s concerns regarding the
impact of elevation on neighboring properties and roadways. FEMA takes a holistic

See FFRMS Job Aid, pg. 14.

approach through the 8-step process as the agency considers the impacts within or
affecting floodplains and wetlands. FEMA applicants propose actions based on their
needs and planning efforts to protect life and property. Where FEMA provides funding
for applicable actions, the FFRMS will help ensure resilience to structures and facilities
against both current and future flood risks, including roadway corridors referenced by the
commenter. Section G.2 of the FFRMS policy provides additional details on the
application of the FFRMS resilience standard to facilities such as roadway corridors.
Comment: A commenter stated that FEMA’s framework, while seeking to retain
flexibility and be easily understood and consistently applied, would complicate
understanding and implementation on the ground, as the framework created a confusing
inundation of floodplain definitions – each of which could be used differently depending
on the program and/or situation for which it is being used and/or applied.
This commenter noted the majority of structures and facilities impacted by the
rulemaking were not residential in nature but stated concerns about implementation and
difficulties of confusing and burdensome requirements. The commenter stated FEMA’s
proposed FFRMS floodplain definition and the vagueness of its depiction would generate
countless unique floodplain definitions for programs. The commenter stated concern that
once adopted and implemented for a very small number of Federally-funded residential
projects, the Federal government would seek to expand the FFRMS applicability to all
structures and that such a move would significantly impact housing affordability across
the country.
The commenter noted the 1 percent annual exceedance probability (AEP) was set
as the basis for the NFIP in the 1960s, and the 1 percent AEP was considered a fair
balance between protecting the public and overly stringent regulation. The commenter
stated that Executive Order 11988 has been historically and purposely tied to the 1
percent annual chance floodplain and that the Federal government had relied on the 1

percent annual chance floodplain when determining the extent of its authority and reach
for most of its related programs, including the NFIP, FIRMs, and the mandatory flood
insurance purchase requirements. The commenter stated this was no longer the case
under the proposed rule.
The commenter stated that during the 1978 Guidelines drafting, concerns were
raised about the need to provide a higher degree of protection for certain activities, and
the 1978 Guidelines bifurcated the definition of floodplain for critical and non-critical
actions. The commenter noted that FEMA was taking a similar approach for the FFRMS
floodplain per the Revised Guidelines, separating the definition further depending on the
type of action and data availability. The commenter stated that unlike the revision made
in the 1978 Guidelines where the 1 percent annual chance floodplain and the 0.2 percent
annual chance floodplain were relatively well-known recurrence intervals and elevation
levels that could be calculated, while the FFRMS floodplain is a “mystery.” The
commenter stated that with the FFRMS floodplain, the public would be faced with
another set of regulatory definitions, creating inconsistencies and further confusing the
various programs and their applicability and requirements. The commenter provided an
example stating the higher flood risk standard for certain applications generated
inconsistencies with the NFIP and the countless State and local regulations tied to the 1
percent annual chance floodplain. With what the commenter categorized as competing
floodplain definitions, the commenter stated that Federal agencies, SLTTs, and the public
would be left wondering which definition was the “real” definition – the climateinformed science definition, the freeboard definition, or the 0.2 annual chance floodplain
definition. The commenter stated it would not always be clear which definition to follow
under different circumstances and that while it may be beneficial for more people to
understand their flood risk, the regulatory uncertainty and unpredictability of so many
floodplain definitions would only multiply.

FEMA Response: FEMA disagrees that the framework to implement the FFRMS
will create a confusing inundation of floodplain definitions – each of which could be used
differently depending on the program and/or situation for which it is being used and/or
applied. Consistent with current practice, FEMA will continue to make the floodplain
determination as part of the action taken, reducing the burden on applicants in the
process. As outlined in the FFRMS Policy, FFRMS requirements are consistent across
FEMA’s programs for those actions that are subject to the FFRMS. FEMA does not
anticipate countless inconsistent floodplain determinations resulting from the
implementation of this rulemaking for FEMA’s programs as the appropriate floodplain
definition is clearly outlined in the FFRMS Policy. FEMA notes that while other Federal
agencies have their own implementing procedures for the FFRMS, FEMA will coordinate
with other agencies to avoid applying conflicting standards on the same action pursuant
to Section H of the FFRMS policy.
FEMA agrees with the commenter that the majority of structures and facilities
subject to FEMA’s FFRMS implementation will not be residential in nature. FEMA does
not believe the commenter’s concerns are warranted regarding expansion of the
FFRMS’s applicability. As explained above, FEMA defines “action subject to the
FFRMS” as “any action where FEMA funds are used for new construction, substantial
improvement, or to address substantial damage to a structure or facility” in this
rulemaking, and the FFRMS applies to grants for projects funding the new construction,
substantial improvement, or repair of substantial damage under FEMA’s grant programs
and does not extend to all structures. FEMA’s final rule is clear that FFRMS is limited in
applicability to those Federally-funded actions.
Rather than bolstering the arguments against utilizing the FFRMS, FEMA
believes the commenter’s statements regarding the 1 percent AEP demonstrate a need to
update the agency’s floodplain determinations under part 9 to meet changing conditions

and better ensure Federal investments are protected from flood damage, and that the
natural values of floodplains are preserved. More than 45 years have passed since
Executive Order 11988 and flooding continues to increase216 and impact Federal
investments.217 FEMA believes the updates made to part 9 in this final rule are an
important step forward to improve resilience and better protect Federal investments from
flood damage than the standards set over almost a half a century ago. FEMA disagrees
with the commenter that the FFRMS approaches result in confusion for Federal agencies,
SLTTs, or the public. The FFRMS Job Aid provides the methodology and process for
FEMA to determine the FFRMS floodplain under each approach, and FEMA’s FFRMS
policy explains how each approach will be applied to specific actions based on the type
and criticality of the action involved, the availability and actionability of data, and equity
concerns. FEMA believes these resources provide sufficient clarity for implementation.
To the extent stakeholders have questions after reviewing these resources, FEMA intends
to provide SLTT partners and the public with additional resources to assist them in
applying for FEMA-funded assistance programs.
FEMA further disagrees with the commenter that the agency’s FFRMS policy
approach is inconsistent with the NFIP minimum standards and other Federal, State,
local, Tribal, and territorial standards. Rather, the FFRMS is generally a higher standard.
Further, § 9.11(d)(6) of the final rule states a more restrictive Federal, State, or local
floodplain management standard will be applied if higher than the FFRMS. FEMA
believes the commenter’s concerns regarding confusion between different floodplain
approaches are unwarranted. The floodplain determination in part 9 has always been
distinct from the NFIP minimum floodplain management standards. While FEMA

As a result of climate change, flood events are on the rise. Climate change is increasing flood risk
through (1) more “extreme” rainfall events,” caused by a warmer atmosphere holding more water vapor
and changes in regional precipitation patterns; and (2) sea-level rise. See Rob Bailey, Claudio Saffioti, and
Sumer Drall, Sunk Costs: The Socioeconomic Impacts of Flooding 3 and 8, Marsh McLennan (2021).
217 Federal Budget Exposure to Climate Risk. OMB Assessment found https://www.whitehouse.gov/wpcontent/uploads/2022/04/ap_21_climate_risk_fy2023.pdf (last accessed Jan. 24, 2024).
understands that the FFRMS approaches provide additional optionality, the FFRMS
policy helps clarify which approach is applicable to those actions subject to the FFRMS.
Comment: Another commenter stated the application of the FFRMS should be in
progressive and adaptive fashion and requested additional guidance on how the FFRMS
would be applied.
FEMA Response: As explained in § 9.5(a)(3), FEMA will apply the FFRMS only
to new FEMA-funded actions involving new construction, substantial damage, or
substantial improvement for which assistance is made available pursuant to declarations
under the Stafford Act that are commenced on or after the effective date of the final rule,
and new FEMA-funded actions involving new construction, substantial damage, or
substantial improvement for which assistance is made available, pursuant to notices of
funding opportunity that publish on or after the effective date of the final rule. Ongoing
projects will not be impacted by this final rule.218 FEMA will continue to analyze the
effectiveness of the agency’s FFRMS policy as part of the FFRMS implementation, and
the policy will be reviewed, revised, extended, and/or rescinded within four years of the
issue date.
Comment: The same commenter inquired as to how the final rule would impact
the current way FEMA-regulated floodplains were handled during the NEPA process.
FEMA Response: FEMA’s integrated reviews under E.O. 11988 and NEPA are
unchanged by the final rule.
Compliance/Enforcement

Note that FEMA first partially implemented the FFRMS by policy with respect to covered projects in
existing floodplains in its Public Assistance and Hazard Mitigation Assistance programs. See FEMA
Policy 104–22–003, “Partial Implementation of the Federal Flood Risk Management Standard for Public
Assistance (Interim),” June 3, 2022 found at https://www.fema.gov/sites/default/files/documents/fema_fp104-22-0003-partial-implemetnation-ffrms-pa-interim.pdf (last accessed Jan. 24, 2024) and FEMA Policy
206–21–003–0001, “Partial Implementation of the Federal Flood Risk Management Standard for Hazard
Mitigation Assistance Program,” Dec. 7, 2022 found at https://www.fema.gov/sites/default/files/
documents/fema_policy-fp-206-21-003-0001-implementation-ffrms-hma-program_122022.pdf (last
accessed Jan. 24, 2024). Some current FEMA actions may be subject to these partial implementation
policies; however, those actions would not be subject to this final rule or policy.
Comments: Two commenters sought clarification on how FEMA would ensure
compliance with the rule. One commenter stated the rule did not address how FEMA
would ensure compliance and enforcement of the FFRMS. The commenter noted FEMA
would monitor and evaluate the implementation of the FFRMS by Federal agencies and
recipients of Federal funds but did not specify how FEMA would do so. The commenter
asked FEMA to provide more information and procedures on what mechanisms FEMA
would use to verify that Federal actions complied with the FFRMS, what consequences
FEMA would impose for non-compliance, and how FEMA would handle disputes or
appeals regarding compliance. Another commenter also stated the rule did not include
monitoring, evaluating, or compliance.
FEMA Response: FEMA currently leverages the 8-step process detailed in 44
CFR part 9 as the mechanism to implement Executive Order 11988, as amended and will
continue to use the 8-step process to monitor and verify compliance with the FFRMS. To
monitor and evaluate the implementation of the FFRMS, FEMA will continue to rely on
step 8 of the 8-step process. Step 8 of the process found at 44 CFR 9.6(b)(8) requires
FEMA to review the implementation and post-implementation phases of the proposed
action to ensure that the requirements stated in § 9.11 are fully implemented. Oversight
responsibility is integrated into existing processes for each grant program. For each
approved action, grant assistance is generally conditioned to follow the requirements
determined during the 8-step process. FEMA is not making changes to paragraph (b)(8)
of § 9.6 in the final rule and will continue to use the current process to ensure compliance
with the FFRMS. To address commenters’ concerns regarding how the agency would
address non-compliance, FEMA will rely on the provisions of 2 CFR part 200. 2 CFR
200.339 also allows FEMA to take action to remedy a recipient’s noncompliance with
federal requirements, including those required by 44 CFR part 9, such as imposing new
conditions on the award or deobligating funding for the award if a recipient does not

adhere to the requirements set forth during the part 9 review process. Disputes regarding
compliance would follow the specific grant program’s appeals process.219
Costs and Delays
Comments: Some commenters had questions regarding the costs associated with
FFRMS implementation and whether or not implementation would result in delaying
actions subject to the FFRMS. Some of these commenters raised specific concerns about
increased costs. One commenter stated there would be a significantly increased cost of
compliance for Federally funded projects as a result of the rule and stated the Federal
government should bear the full cost of FFRMS implementation. The commenter also
asked whether the FFRMS would be adopted for FEMA funding only or for all Federal
agencies and whether the FFRMS would apply to Federally funded projects that are
focused on flood damage reduction projects. Another commenter stated the FFRMS
implementation, through higher vertical elevation or floodproofing, or other mitigation
mandates, could significantly alter and raise the cost of water resource projects and
ongoing operations and maintenance for water resources infrastructure systems, which
were paid for by the local taxpayers. The commenter asked how the FFRMS would
interface with other Federal agencies and impact non-Federal sponsor responsibilities for
projects. A third commenter stated concern for the increased costs of meeting heightened
standards and recommended FEMA identify opportunities to expand the agency’s grants
and otherwise reduce local costs to help ensure the new resilience standard did not
prevent projects from going forward.
Two commenters raised concerns regarding equity and costs. One commenter
stated the rule would increase the costs of Federally-funded projects and that while the
higher standards would help decrease costs to the community and residents in the long

FEMA’s appeals and arbitrations process for PA can be found at 44 CFR 206.206 and HMGP’s appeals
process can be found at 44 CFR 206.440.
term, the higher short-term costs could have the unintended effect of making needed
projects infeasible, especially for communities of low-to middle-class incomes and
taxbases. This commenter recommended FEMA work to increase funding to implement
FFRMS through increasing grant funding cap ceilings, expanding funding opportunities,
and lowering cost share requirements. Another commenter stated both the rule and
FFRMS policy would potentially raise costs associated with Federal actions and
implement ambiguous standards ill-suited to rural areas. The commenter stated the rule
and FFRMS policy raised design standards for Federal actions, which would affect
mitigation and public assistance projects for post-disaster recovery. The commenter
stated the elevated design standards would increase project costs and these increased
costs would be absorbed into applications and proposals for these projects. The
commenter wrote that these projects already had limited available funding and were often
prohibitively competitive for rural communities, creating an additional burden on these
applicants.
FEMA Response: FEMA appreciates the commenters’ concerns on the increased
costs of projects and the commenter’s requests to expand grant funding and grant funding
caps, as well as lowering cost-share requirements. The cost of compliance with the
FFRMS will be included in the total project costs and will be funded at each program's
applicable cost-share. Some FEMA programs are capped in funding each year, thus, the
additional costs of FFRMS requirements would not add to the total funding for these
programs. The effects of the FFRMS requirements would be distributional within the
existing funding caps and would not constitute new spending by FEMA. For disaster
programs where funding is not capped, the application of the FFRMS will increase the
total amount of funding provided under the program, and each project will be subject to
the applicable cost-share. Cost-share requirements are determined consistent with
specific grant program requirements.

As explained above, the FFRMS is only applicable to actions involving the use of
Federal funds for new construction, substantial improvement or to address substantial
damage to a structure or facility. This rulemaking is applicable only to FEMA-funded
projects for FEMA programs such as IA, PA, and HMA, and grants processed by
FEMA’s GPD. This includes some flood damage reduction projects.
FEMA has always incorporated social concerns and economic aspects into the 8step process as part of the practicability analysis. FEMA’s revisions to part 9 reflect
consideration of the type and criticality of the action involved, the availability and
actionability of the data, and equity concerns in the implementation of Executive Order
11988, as amended. FEMA also has an agency-wide initiative focused on reducing
barriers and increasing opportunities so all people, including those from vulnerable and
underserved communities, can get help when they need it.220 FEMA reviews all
proposed FEMA-funded actions for potential disproportionate and adverse human health
and environmental effects on communities with environmental justice concerns using a
standardized environmental justice compliance review process.
FEMA disagrees with the commenter’s suggestion that the FFRMS is ill-suited to
rural areas, as disasters impact all areas and flooding continues to increase across the
United States, including in rural areas.221 Rather, these areas can benefit from Federal
investments that are more resilient to flooding. FEMA believes the FFRMS will ensure
that Federal funding will result in more resilient rural communities, without overly
burdening these communities as they seek to recover. While FEMA acknowledges some
of the agency’s grant programs have cost share requirements and that competition exists

See https://www.fema.gov/emergency-managers/national-preparedness/equity (last accessed Jan. 24,
2024).
221 Information on FEMA disaster and other declarations, see https://www.fema.gov/disaster/declarations
(last accessed Mar. 27, 2024). For FEMA disaster and other declarations specific to the commenter, see
https://www.fema.gov/disaster/declarations?field_dv2_declaration_date_value%5Bmin%5D=2019&field_
dv2_declaration_date_value%5Bmax%5D=2024&field_dv2_declaration_type_value=All&field_dv2_incid
ent_type_target_id_selective=All&field_dv2_state_territory_tribal_value%5B%5D=MT (last accessed
Mar. 27, 2024).
for FEMA funding, the agency has programs in place to assist rural and other
disadvantaged communities.222
Comment: Two commenters stated concerns with delays. One commenter stated
concerns with project delays regarding FEMA making the final decision on the
information the applicant would use and making the final decision on how permitting
agencies were processing and permitting federal actions. Another commenter raised
similar concerns regarding permitting, stating the proposed rule and policy would create
separate permitting standards for some Federal and non-Federal actions, adding
complexity that necessitated additional expertise when administering local floodplain
programs and disproportionately impacting rural communities that already lacked
sufficient staffing and funding to administer these programs. This commenter also stated
the proposed rule and policy would also lengthen project timelines for Federal actions.
The commenter stated that FEMA making the decisions on both the information the
applicant is using and how permitting agencies would process and permit Federal actions.
The commenter stated this would add time, documentation, and coordination between
local communities, project proponents, stakeholders, and even FEMA, for critical
mitigation projects and urgent post-disaster recovery efforts that required expedience.
The commenter requested that FEMA minimize red tape and expense for communities
seeking to implement projects, as the proposed rule adds bureaucracy and increases the
resources required to successfully implement meaningful projects.

For example, see FEMA, Press Release, Biden-Harris Administration Announces Nearly $2 Billion in
Available Funding to Increase Climate Resilience Nationwide, https://www.fema.gov/pressrelease/20231012/biden-harris-administration-announces-nearly-2-billion-available-funding (last accessed
Mar. 27, 2024) (“As part of the Administration’s Justice40 initiative, the BRIC and FMA programs aim to
deliver 40 percent of their overall benefits to disadvantaged communities that are marginalized,
overburdened by pollution, and underserved. . . FEMA is providing up to 90 percent federal cost share for
FMA in disadvantaged communities, relative to a standard cost share of 75 percent. Designated
Community Disaster Resilience Zones (CDRZs) are eligible for up to 90 percent federal cost share for
BRIC, relative to a standard cost share of 75 percent. . . FEMA continues to not require a Benefit-Cost
Analysis as a condition to apply for an Economically Disadvantaged Rural Community, federally
recognized tribal government, or a subapplicant with a hazard mitigation project within or primarily
benefiting a Community Disaster Resilience Zone. FEMA will review the hazard mitigation project
subapplications that are eligible for selection and may assist such communities with developing a BCA.”).
Another commenter raised concerns regarding both costs and delays, requesting
further clarification on whether the FFRMS allowed for FEMA funding to cover
expenses associated with making necessary improvements and enhancements to
roadways, bridges, and culverts or if the funding was only for the in-kind replacement of
structures. The commenter stated additional funding should be considered for the delay
in project delivery due to the application of the FFRMS.
FEMA Response: FEMA appreciates the commenters’ concerns regarding project
delays and costs. FEMA notes the determination on the information the applicant is
using under part 9 has always been made by the agency and thus, FEMA does not
anticipate administrative delays with projects as a result of that aspect of FFRMS
implementation. The time taken to complete the 8-step process will be project specific.
Additional time, documentation, and coordination may be necessary for projects subject
to the FFRMS (i.e., actions that involve new construction, substantial damage, or
substantial improvement as they are typically the most complex types of actions that
FEMA funds). As part of the final rule, FEMA adjusted for inflation certain thresholds
that determine which actions are exempt from, or subject to, an abbreviated 8-step
process. FEMA will also establish a procedure for future annual adjustments of these
thresholds. The thresholds enable FEMA to exempt or expedite the requirements of 44
CFR part 9 by streamlining the process for those actions that offer little opportunity for
alternate locations or actions, or minimization, due to practicability. These changes may
mitigate, as to smaller projects, timing concerns raised by the commenters.
Regarding permitting actions, FEMA will provide additional guidance for the
public and SLTT partners identifying what the FFRMS is, and how the agency will
implement the updates to part 9 to assist applicants for FEMA-funded assistance
programs. FEMA’s regional offices will also provide technical assistance as part of the
rule’s implementation. For those SLTT entities that may be permitting actions, as

explained above, FEMA’s role under 44 CFR part 9 has not changed with this rule. The
changes made in this final rule are to implement updates to Executive Order 11988, as
amended, and to otherwise update the 8-step process. Changes related to the floodplain
determination implementing the FFRMS will only be applicable to those actions subject
to the FFRMS as defined in the rule. FEMA notes this final rule does not apply to a local
community’s permitting processes under the NFIP’s floodplain management regulations.
Those regulations are found at 44 CFR part 59 et seq.
FEMA understands the final commenter's concerns regarding applicability of this
rulemaking to improvements and enhancements to roadways, bridges, and culverts, as
well as in-kind replacement of structures. In each scenario presented by the commenter,
FEMA’s funding is based on actual project costs for any FEMA-funded project. FEMA
understands that any project may be delayed due to a variety of factors, and increased
costs associated with those delays are generally part of the actual project costs.
Additional costs incurred to comply with FFRMS would be eligible for FEMA funding.
Timing
Comment: Two commenters commented on the timing for implementing the rule.
One commenter stated concern that the proposed changes could significantly restrict
ongoing work. The commenter stated the proposed rule and policy did not identify when
it would become effective, or how it would affect projects related to ongoing recovery
efforts. The commenter requested the effective date be clarified and implemented so as
to not disrupt ongoing recovery efforts. The other commenter requested FEMA consider
“grandfathering” clause similar to the one provided in Executive Order 11988.
FEMA Response: FEMA is issuing this final rule with an effective date of
September 9, 2024. As explained in § 9.5(a)(3), FEMA will apply the FFRMS only to
new actions for which assistance is made available pursuant to declarations under the
Stafford Act that are commenced on or after the effective date of the final rule, and new

actions for which assistance is made available pursuant to notices of funding opportunity
that publish on or after the effective date of the final rule. Ongoing projects will not be
impacted by this final rule.223 FEMA does not believe a grandfathering clause is needed
for this rulemaking.
Metrics
Comments: Two commenters requested FEMA develop metrics for the rule and
policy implementation. One commenter stated that creating metrics was essential. The
commenter noted that the proposed policy outlined objectives but lacked specific metrics
to gauge progress towards achieving them. The commenter stated the absence of suitable
metrics guaranteed a transition into subjective assessments, making it impossible to
balance trade-offs among objectives. The commenter recommended that FEMA establish
appropriate metrics to ensure objective evaluation and avoid subjective interpretations.
The commenter requested that FEMA include measurable metrics in the policy statement,
allowing for a quantifiable assessment of advancement toward achieving well-defined
and substantiated objectives.
Another commenter agreed that the policy statement establishes objectives
without setting metrics for measuring progress towards those objectives. The commenter
wrote the proposal was unbalanced, as it was confined almost exclusively to restrictions
on floodplain occupancy and use, with no policy objective promoting economic
development or even economic development rationally constrained by other
considerations. The commenter stated that it is difficult to understand how the proposed

Note that FEMA first partially implemented the FFRMS by policy with respect to covered projects in
existing floodplains in its Public Assistance and Hazard Mitigation Assistance programs. See FEMA
Policy 104–22–003, “Partial Implementation of the Federal Flood Risk Management Standard for Public
Assistance (Interim),” June 3, 2022 found at https://www.fema.gov/sites/default/files/documents/fema_fp104-22-0003-partial-implemetnation-ffrms-pa-interim.pdf (last accessed Jan. 24, 2024) and FEMA Policy
206–21–003–0001, “Partial Implementation of the Federal Flood Risk Management Standard for Hazard
Mitigation Assistance Program,” Dec. 7, 2022 found at https://www.fema.gov/sites/default/files/
documents/fema_policy-fp-206-21-003-0001-implementation-ffrms-hma-program_122022.pdf (last
accessed Jan. 24, 2024). Some current FEMA actions may be subject to these partial implementation
policies; however, those actions would not be subject to this final rule or policy.
regulation would be useful given the proposal’s narrow focus on constraints and
restrictions. The commenter wrote that although FEMA stated that the FFRMS would
promote resilience, the NPRM apparently reflected FEMA’s perspective that economic
development had no place in resilience. The commenter recommended that the proposal
be modified to establish the objective of economic efficiency in floodplain use and
occupancy, while giving appropriate weight to the constraints on efficiency and
development already inherent in the policy statement. Similar to the other commenter,
this commenter stated that the proposal should be modified to express the metrics that
would be used in establishing quantifiable progress toward clear and supported
objectives. The commenter wrote that failing to establish appropriate metrics assured the
effort would devolve into subjective evaluations where trade-offs among objectives
became impossible.
FEMA Response: FEMA understands the commenters’ concerns regarding
measuring the effectiveness of the rule and policy; however, the agency disagrees that
measurable metrics must be included in the regulation or policy to do so. FEMA
disagrees that the absence of such metrics will result in subjective interpretations for the
effectiveness of the rule and policy, as well as the FFRMS implementation for each
action. FEMA’s 8-step process and the results of the process are documented, and each
applicant receives this information as part of the agency’s compliance process.224 FEMA
will evaluate the effectiveness of the rule and policy as part of the agency’s role in the
IWG to reassess the FFRMS.
FEMA disagrees with the commenter that the rule and policy do not consider
economic development. Consistent with Executive Order 14030,225 the FFRMS will
prioritize Federal investment and conduct prudent financial management of Federal
See Environmental Planning and Historic Preservation Responsibilities and Program Requirements,
available at https://www.fema.gov/sites/default/files/2020-07/fema_ehp_requirements_2018.pdf (last
accessed Mar. 27, 2024).
225 “Climate-Related Financial Risk,” 86 FR 27967 (May 20, 2021).
government resources to mitigate climate-related financial risk, while accounting for and
addressing equity considerations and economic impacts. For individual actions, FEMA
identifies and evaluates practicable alternatives to carrying out a proposed action in
floodplains or wetlands. In determining the practicability of the alternatives, social
concerns and economic aspects are considered in § 9.9. These requirements ensure that
FEMA’s approach to floodplain use entails consideration of specific community needs.
Finally, FEMA disagrees with the commenter that the agency does not consider
economic development, as the 8-step process requires a practicability analysis that
considers factors including economic aspects. FEMA thus does not believe the agency
needs to revise the FFRMS policy’s principles or the rule’s policy statements to ensure
economic aspects are considered.
Appeals Process
Comments: Three commenters requested FEMA provide an appeals process.
Two commenters wrote there was no viable process available to non-Federal entities to
seek a review and adjudication of decisions made under the FFRMS. The commenters
stated the impacts of the FFRMS would not be confined to the Federal government but
would have far-reaching impacts on non-Federal public entities and the private sector.
The commenters noted that Federal taxpayers should be protected from a Federal
standard likely to impose costs without being subject to a benefits justification. The
commenters recommended an appeals process be made available to non-Federal entities
to review and adjudicate decisions made under the FFRMS. The third commenter
requested an appeals process for communities that disagreed with a determination using
the FFRMS. The commenters stated an appeals process would provide transparency and
enable communities to have a voice in these important decisions that significantly impact
them.

FEMA Response: FEMA does not believe a separate appeals process is required
under part 9. FEMA conducts the 8-step process collaboratively with participation from
applicants and grant program staff, with applicants having responsibility to provide
information and participate in the process.226 This collaborative process allows for
resolution of disagreements and for FEMA to provide technical assistance on the
requirements of 44 CFR part 9. FEMA hopes to be able to resolve disagreements during
this process so that a project may be made eligible. However, if a grant applicant
disagrees with the application of the FFRMS and is subsequently denied funding for the
project, the applicant should be able to avail itself of FEMA’s existing appeals processes
for its grant programs.227 FEMA understands the commenter’s concern regarding
community participation but believes the current 8-step process sufficiently engages the
public. FEMA will continue to notify the public at the earliest possible time of the intent
to carry out an action in a floodplain or wetland and involve the affected and interested
public in the decision-making process, as detailed further in § 9.8. Further, communities
provide input into the floodplain determination for part 9. Pursuant to 44 CFR
9.11(d)(6), if there is a more restrictive Federal, State, or local standard, it will be
used. This includes the use of local CISA data and methods that have been adopted by a
community for use in floodplain management, as long as such data results in a more
restrictive standard. FEMA values additional input from SLTT partners and the public in
the 8-step process.

See 44 CFR 9.16, 9.17.
See, e.g., 2 CFR 200.339 and 200.342; see also 44 CFR 206.206 (appeals and arbitration process for
PA), 44 CFR 206.115 (appeals process for IA), 44 CFR 206.440 (HMGP and HMGP Post-Fire’s appeals
process); and “Hazard Mitigation Assistance Program and Policy Guide,” pg. 211-216, 229-234, 240-241,
and 247available at
https://www.fema.gov/sites/default/files/documents/fema_hma_guide_08232023_v1.pdf (last accessed
April 2, 2024) (appeals process for HMGP, HMGP Post-Fire, BRIC, and FMA), “Public Assistance
Program and Policy Guide, pgs. 39-41 available at
https://www.fema.gov/sites/default/files/documents/fema_pappg-v4-updated-links_policy_6-1-2020.pdf
(last accessed Mar. 12, 2024).
226
Regarding cost concerns, FEMA completed an analysis of the economic impact of
this rulemaking, and the agency believes that the benefits of preventing property damage
and potentially saving lives justify the costs of the rule. These benefits are a result of the
improved protection of structures and facilities due to increased elevation and
floodproofing standards in FEMA’s implementation of the FFRMS. This rule will help
to ensure that Federal investments are better protected from flood damage, and that the
natural values of floodplains are preserved.
Other Implementation Concerns
Comments: One commenter requested the rule require consideration of ways to
prevent groundwater contamination when managing floodwater for use in water supply
storage. The commenter suggested that the rule include provisions to pretreat or avoid
the injection of "the first flush of stormwater runoff (generally the first runoff from 1.5
inches of rainfall), which can contain potential pollutants. The commenter also requested
the rule acknowledge that MAR-related activities could be subject to other State and/or
Federal regulations. Another commenter stated certain requirements for minimum
conveyance, storage, and design criteria would be needed for all regional projects and
watershed projects to ensure Federal funding eligibility with FFRMS implementation.
FEMA Response: FEMA understands the commenters’ concerns but disagrees
that any changes to the rule are required to ensure consideration of these issues. As
previously explained, impacts are considered during the 8-step process including those
referenced by the commenters. These considerations are not changing as part of this final
rule and will continue to be utilized by FEMA when completing the analysis.
Further, Part 9 applies only to FEMA actions, and the FFRMS applies only to
those actions where FEMA funds are used for new construction, substantial
improvement, or to address substantial damage to a structure or facility for FEMA
programs such IA, PA, and HMA, and grants processed by FEMA’s GPD. Where

applicants seek FEMA funding through these programs for the actions the commenters
reference, part 9 applies.
Regarding a need to adapt design criteria, the FFRMS is a resilience standard that
is applicable to structures and facilities. When considering design criteria, and
particularly in cases where elevation as a minimization measure may not be feasible or
appropriate for facilities, the FFRMS floodplain, determined according to the process
described in section C of the FFRMS policy, establishes the level to which a structure or
facility must be resilient. Resilience measures include using structural or nonstructural
methods to reduce or prevent damage; elevating a structure; or, where appropriate,
designing it to adapt to, withstand and rapidly recover from a flood event. To the extent
practicable and in accordance with applicable grant program requirements, projects for
facilities located within a FFRMS floodplain must be designed to help ensure resilience
against flooding up to the flood elevation of the FFRMS floodplain.
Comment: A commenter requested the exception process for the FFRMS allow
for appropriate balancing of the community’s overall public health and safety priorities in
project decisions. The commenter gave an example of a hospital being limited in making
critical improvements because of the cost to incorporate the FFRMS as an example of
where the community’s overall well-being might be impacted.
FEMA Response: FEMA disagrees that a separate exception process is needed
given the flexibility of the 8-step process. For individual actions, FEMA identifies and
evaluates practicable alternatives to carrying out a proposed action in floodplains or
wetlands. In determining the practicability of the alternatives, social concerns and
economic aspects such as those raised by the commenter are considered in § 9.9.
FEMA will continue to notify the public at the earliest possible time of the intent
to carry out an action in a floodplain or wetland and involve the affected and interested
public in the decision-making process, as detailed further in § 9.8. FEMA values

additional input from SLTT partners and the public in the 8-step process to help ensure
FEMA actions meet community needs. FEMA notes any increased costs are generally
eligible for funding under FEMA’s assistance programs subject to cost share
requirements.
2. Coordination with Other Federal Agencies
Commenters had questions about how FEMA would coordinate with other
Federal agencies when implementing the FFRMS. Commenters raised questions and
concerns with how FEMA would work with other Federal agencies to implement the
FFRMS and the interaction between the FFRMS and other programs such as the NFIP.
Comments: Commenters requested FEMA provide more information on how
FEMA would complete coordination with other Federal agencies. A commenter
requested clarification on how the agency would coordinate with other Federal agencies,
and State and local governments to ensure consistent implementation of the FFRMS.
One commenter asked how the primary agency would be determined and stated that
many local agencies would not have the capability and capacity to navigate through
different federal agencies with differing requirements for FFRMS implementation.
Another commenter requested the proposed rule reconcile which agency’s FFRMS
procedures would be applied for projects with more than one Federal funding source.
This commenter stated the NPRM did not provide a process to reconcile difference in
requirements from different agencies and stated the differences between agencies that
have already published FFRMS proposals. The commenter requested FEMA assure
harmonization in the FFRMS criteria application across the Federal government. One
commenter stated FEMA must also account for the central role that SLTT governments
play in floodplain management, including designing climate resilience actions and
implementing regulations. The commenter wrote consistent that expectations and

procedures would benefit all sides by expediting interagency coordination and reducing
confusion, delays, and accidental noncompliance.
FEMA Response: FEMA understands the concerns associated with consistent
application of the FFRMS, and FEMA’s FFRMS policy provides details on how FEMA
will coordinate with other agencies when implementing actions in the same area as
another Federal agency. See Section H, page 9. Specifically, FEMA’s FFRMS policy
states that when coordinating with other Federal agencies, FEMA will generally default
to the FFRMS policy approach in FEMA's FFRMS policy, as appropriate. In addition,
per 44 CFR 9.11(d)(6), actions must be consistent with the NFIP, as well as any more
restrictive Federal, State, or local floodplain management standards. Those floodplain
management standards may include a more restrictive application of another Federal
agency’s FFRMS approach.
Additionally, FEMA’s interagency consultative role in the broader
implementation of the FFRMS across the Federal government, through the agency’s
participation in the Interagency Working Groups and the FIFM-TF helps ensure
consistent and effective implementation across the Federal government. FEMA’s work
in that context is intended to address the types of concerns raised in the comment
regarding harmonizing application of the FFRMS criteria across the Federal government.
Executive Order 11988, as amended, further establishes the process by which the FFRMS
will be reassessed in an interagency manner in conjunction with the WRC, the MitFLG,
and the FIFM-TF. See Section 4(a) and (b).
FEMA understands the concerns raised by the commenters regarding local
capability and capacity, and the agency will distribute additional resources to SLTT
partners and the public identifying what the FFRMS is, and how the agency will
implement the Executive Orders to assist applicants of FEMA-funded assistance
programs. FEMA will also provide technical assistance through the agency’s regional

offices to support the FFRMS implementation. Additionally, FEMA notes the agency
does consider the central role that SLTTs play in floodplain management. FEMA
conducts the 8-step process collaboratively with participation from SLTT partners and
grant program staff, with responsibilities and requirements for applicant participation in
the 8-step process outlined in the long-standing requirements of 44 CFR 9.17. FEMA
also recognizes the role played by SLTTs in setting floodplain management standards for
their communities. Pursuant to 44 CFR 9.11(d)(6), a more restrictive Federal, State, or
local standard will be used. FEMA believes the final rule and FFRMS policy outline
consistent expectations and procedures for application of the 8-step process, minimizing
confusion, delays, and accidental noncompliance.
Coordination with Specific Agencies
Comments: Some commenters encouraged FEMA to engage with specific
agencies when implementing FFRMS. One commenter encouraged FEMA to coordinate
with other Federal agencies, such as HUD, SBA, USDA, DOE, DoD, to improve
application and effectiveness of national floodplain standards. Another commenter
suggested Federal agencies, including FEMA, NRCS, FWS, and others examine the
efforts of Federal agencies to restore floodplains. The commenter stated their
understanding that even for Federal agencies responsible for addressing water, soil, and
habitat concerns, floodplain regulations are a significant barrier to restoration. The
commenter stated the review of floodplain restoration efforts should not only cover the
multi-million-dollar projects, but also include smaller-scale projects, as there are plenty
of opportunities for small scale, impactful restoration projects that become too costly
when implemented consistent with a regulatory process.
Another commenter requested that FEMA take a leadership role in tracking
floodplain development on a national scale. The commenter stated there was no
meaningful Federal commitment to track gains or losses in floodplain functions in the

same way wetlands are tracked through the National Wetlands Inventory. The
commenter referenced an estimate that 70 percent of the nation’s floodplains had poor
integrity due to development and alterations that limited floodplain functionality. The
commenter noted this estimate provides a snapshot, but that it is essential to have
nationwide statistics that allowed decision makers to understand and communicate
floodplain loss. The commenter stated that floodplains are not broadly recognized by the
public or decision makers for the valuable benefits they provide, and the lack of
comprehensive, nationally-led data and analysis for floodplain functions has resulted in
disjointed and unstable efforts focused on policy, funding, and communication in support
of protecting and restoring floodplains in the United States, as well as a lack of data that
allows an analysis of the impact that Executive Order 11988 has played. The commenter
requested that FEMA, as the lead Federal agency charged with implementing a national
floodplain management strategy, take a leadership role in tracking loss of functional
floodplains as a component of the 8-step process when implementing Executive Orders
11988 and 13690. The commenter encouraged FEMA to work with HUD, the United
States Geological Survey, the USACE, and other Federal agencies to track and quantify
the effectiveness of the Executive Orders in avoiding floodplain development and
preserving and restoring the natural and beneficial values of functional floodplains.
FEMA Response: FEMA’s interagency consultative role in the broader
implementation of the FFRMS across the Federal government, through the agency’s
participation in the Interagency Working Groups and the FIFM-TF helps ensure
consistent and effective implementation. In this role, FEMA has coordinated, and will
continue to coordinate, with other Federal agencies, including those listed by the
commenters, on the FFRMS. Executive Order 11988, as amended, further establishes the

process by which the FFRMS will be reassessed in an interagency manner in conjunction
with the WRC, the MitFLG, and the FIFM-TF.228 See Section 4(a) and (b).
For individual actions subject to the FFRMS, FEMA will continue to coordinate
with other agencies to expedite and unify the floodplain management review process, as
detailed in the FFRMS policy. FEMA appreciates the commenter’s concerns regarding
floodplain restoration, but notes that the commenter’s request for multiple Federal
agencies to do a retrospective review of their efforts to restore floodplains is beyond the
scope of this rulemaking, which involves updates to FEMA floodplain management
regulations to implement the FFRMS. FEMA’s regulations at part 9 address the
commenter’s concerns regarding the need to protect floodplains. Specifically, § 9.2
discusses the agency’s policy to “restore and preserve the natural and beneficial values
served by floodplains.” The final rule strengthens this policy by requiring the use of
nature-based solutions when identified as a practicable alternative during the 8-step
process as outlined in 44 CFR 9.9(b)(2). Further, § 9.11(b) discusses how FEMA will
take action to restore and preserve floodplains and wetlands. FEMA understands the
need to include smaller-scale projects and the commenter’s concerns regarding costs
when complying with regulatory requirements but believes the rule and FFRMS policy
helps address these considerations. The rule and FFRMS policy require FEMA to
consider the type of criticality of the action involved, the availability and actionability of
data, and equity concerns. Actions are only subject to the FFRMS if FEMA funds are
used for new construction, substantial improvement, or to address substantial damage to a
structure or facility.
FEMA understands the commenter’s concerns regarding tracking floodplain
development and the lack of a national inventory for floodplains similar to the National
Wetlands Inventory. FEMA agrees that nationwide statistics could better support

80 FR 6425 (Feb. 4, 2015).

decision makers and encourages other Federal agencies to look across the spectrum of
floodplain impacts for their own agency activities. However, FEMA has no statutory
authority to mandate the more structured tracking system the commenter requests across
the Federal government.
FEMA completed that analysis for the FFRMS consistent with its requirements
under OMB Circular A-4. FEMA considered the costs and benefits associated with this
rule, including the overall increased costs of FEMA projects, in the regulatory impact
analysis provided on the public docket for this rulemaking.229 FEMA believes that the
benefits of preventing property damage and potentially saving lives justify the costs of
the rule. These benefits are a result of the improved protection of structures and facilities
due to increased elevation and floodproofing standards in FEMA’s implementation of the
FFRMS. This rule will help to ensure that Federal investments are better protected from
flood damage, and that the natural values of floodplains are preserved.
Pursuant to OMB Circular A-4, agencies are required to monetize quantitative
estimates whenever possible; however, if monetization is impossible, the agency must
explain why and present all available quantitative information. An agency should also
provide a description of the unquantified effects and the strengths and limitations of the
qualitative information. FEMA requested public comments throughout the RIA because
it was aware of the limitations of the data used to estimate the costs and benefits of the
rule. FEMA’s intention was to give the public the opportunity to submit data that was
not available to FEMA at the time of publication of the NPRM but could help improve
the estimates made for the final rule.
FEMA recognized in both its NPRM and RIA that there was a lack of actionable
climate data for the FFRMS. FEMA expects that more data will be available as agencies
implement the FFRMS, and that will be incorporated into interagency tools. FEMA

See https://www.regulations.gov/document/FEMA-2023-0026-0013.

further recognized that there was a limited amount of data available on the monetized
benefits of freeboard that would be affected by the rule and requested comments from the
public about whether there was available data that could be used for such
estimates. FEMA conducted a quantitative benefits analysis for PA. Due to the limited
quantitative analysis, FEMA also completed a qualitative analysis to meet its obligations
under OMB Circular A-4 with respect to benefits by including the following: (1)
literature reviews on the benefits of flood mitigation activities; (2) reports which analyzed
potential savings from damage avoidance associated with including freeboard in the
construction of new residential structures in coastal areas at various freeboard levels; and
(3) a description of qualitative benefits which included the potential for lives saved,
savings in time and money from a reduced recovery period after a flood, increased safety
of individuals, increased public safety, reduced personal and community impacts, and
reduction in future health issues related to flooding.
With respect to the overall costs for the rule, FEMA met its obligations under
OMB Circular A-4 by producing qualitative and quantitative measurements of the cost of
the application of the FFRMS by each grant program. FEMA notes any increased costs
for FEMA actions are generally eligible for funding under FEMA’s assistance programs
subject to cost share requirements.
Comment: One commenter raised several questions about the implementation of
FFRMS for roadways, bridges, and culverts and how FEMA would engage with other
Federal and non-Federal agencies. The commenter raised several questions about how
the FHWA and the Department of Transportation (DOT) regulations would interact with
FEMA’s FFRMS implementation and requested FHWA regulations apply to these
actions. The commenter raised questions on the use of State regulations and asked how
the FFRMS would impact scour calculations and designs. The commenter asked how
FEMA would determine when a nature-based approach would be used, stating that

FHWA and many States had their own guidance for the use of nature-based approaches.
The commenter also stated all of the FFRMS approaches indicated higher vertical flood
elevations and an expanded horizontal floodplain and inquired as to whether elevating a
structure would also include potential roadway grade changes and raising a bridge
structure if viable for resilience as some locations.
FEMA Response: As explained previously, this rulemaking only applies to
actions where FEMA funds are used for new construction, substantial improvement, or to
address substantial damage to a structure or facility under FEMA programs such as IA,
PA, and HMA programs, and grants processed by FEMA’s GPD. FEMA does not fund
repairs or improvements to Federal-aid roads, and this rulemaking would not be
applicable to those roads. Rather, as the commenter states, the FHWA regulations would
govern those actions. Where FEMA may provide funding, FEMA’s FFRMS policy
provides details on how FEMA will coordinate with other agencies when implementing
actions in the same area as another Federal agency. See Section H, page 9. When
coordinating with other Federal agencies, FEMA will generally default to the FFRMS
policy approach in FEMA's FFRMS policy, as appropriate. Where FEMA provides
funding for these activities, FFRMS applies to improve resilience to facilities against
both current and future flood risks.
Section 9.11(d)(6) of the final rule states that even when FEMA is providing
funding, a more restrictive Federal, State, or local floodplain management standard will
be applied. States with more restrictive standards continue to govern these actions.
Section G.2 of FEMA’s FFRMS policy further discusses flood risk minimization for
facilities and clarifies that FEMA would allow any specific method to be used to help
ensure resilience against flooding up to the flood elevation of the FFRMS floodplain in
conjunction with any other applicable codes and standards.

In response to the commenter’s concerns regarding nature-based approaches and
conflicts with other Federal and State requirements, Section A.2 of FEMA’s FFRMS
policy states “Applicability: The Natural Features and Nature-Based Solutions
requirements of this policy apply to all Actions subject to the full 8-step decision-making
process.” As explained in Section F, it should be used where possible.230
To address the commenters inquiry on whether roadway grade changes and
raising a bridge structure would be required, FEMA begins any analysis by confirming
applicability. As defined in § 9.4, a “structure” means walled and roofed buildings,
including a temporary housing unit (manufactured housing) or a gas or liquid storage
tank. The example provided by the commenter is not a structure under part 9 but rather a
facility. As section G.2 of FEMA’s FFRMS policy states, “[t]he FFRMS is a resilience
standard. Particularly in cases where elevation may not be feasible or appropriate for
facilities, the FFRMS floodplain, determined according to the process described in
section C of this policy, establishes the level to which a structure or facility must be
resilient. Resilience measures include using structural or nonstructural methods to reduce
or prevent damage; elevating a structure; or, where appropriate, designing it to adapt to,
withstand and rapidly recover from a flood event.”231
Coordination with non-Federal Agencies
Comments: A commenter recommended FEMA engage through comprehensive
consultations with local governments, non-Federal stakeholders, and regional experts to
gather insights and refine the currently proposed national approach to ensure that policies
aligned with regional differences and addressed specific challenges identified by
stakeholders. The commenter also recommended FEMA develop a robust
communication strategy to clarify the integration of local government systems and policy

See Section F of the FFRMS Policy, “Where possible, the Agency shall use natural systems, ecosystem
processes, and nature-based solutions.”
231 See https://www.regulations.gov/document/FEMA-2023-0026-0005.
implementation with non-Federal stakeholders, while also creating a means of providing
feedback throughout the FFRMS implementation process.
The commenter further stated that the roles, responsibilities, and authorities of
non-Federal sponsors of actions might not align with FEMA’s FFRMS proposed policy
and requested FEMA clarify how non-Federal sponsors and other stakeholders would
engage with and be affected by the rule. The commenter noted collaboration between
non-Federal sponsors, communities, the USACE, and FEMA can yield significant
benefits, but stated the collaboration was contingent on a clear, justified, and achievable
delineation of agency and stakeholder roles and responsibilities. The commenter stated
the FFRMS proposed rule and policy failed to address the roles of non-Federal
stakeholders, which could significantly hinder non-Federal stakeholders’ understanding
of their responsibilities within the FFRMS framework. The commenter stated the
FFRMS lacked an explanation of how the policy aligns with other floodplain-related
policies. The commenter stated that this oversight might burden local non-Federal
sponsors with additional responsibilities related to addressing property damage and new
construction, potentially creating confusion and additional workload, and importantly,
likely forcing non-Federal sponsors to assume duties outside their legal authorities and
core competencies, and expose them to potential liability.
The commenter recommended that FEMA provide greater clarity on the roles of
State and local government and other non-Federal stakeholders. The commenter
requested that FEMA consider and accommodate the resource and legal boundaries of
non-Federal stakeholders, ensuring that policies and directives were realistic and
compatible with their authorities and available resources and tailoring requirements that
align with the authorities of non-Federal stakeholders. The commenter stated this
entailed revising policies to avoid mandating actions that fall outside the legal jurisdiction
of non-Federal stakeholders.

FEMA Response: FEMA disagrees with the commenter that additional
engagement to refine the FFRMS is required. In addition to the comment period in 2023,
FEMA completed outreach regarding FFRMS in 2015 as part of the development and
publication of the Revised Guidelines, as well as the agency’s prior NPRM in 2016.232
FEMA understands the commenter's concern regarding the role of non-Federal
partners, but that role in the 8-step process remains unchanged as a result of this
rulemaking. FEMA values the collaboration and coordination with SLTT and other nonFederal partners in the 8-step process and will continue to engage with stakeholders and
the public throughout the 8-step process to meet the needs of communities and
stakeholders impacted by FEMA actions subject to this rulemaking. Specifically for
applicants for federal financial assistance, 44 CFR 9.17 outlines the specific roles and
responsibilities that exist for them in the 8-step process.
Comment: The same commenter stated the rule lacked clarity on integration with
local government systems and communications regarding policy implementation with
non-Federal stakeholders. The commenter stated this oversight raised doubts about
adaptability and alignment with existing regional policies, potentially leading to conflicts
and inefficiencies in implementation. The commenter raised concerns regarding the
removal of Flood Hazard Boundary Maps (FHBM) stating that the removal resulted in a
lack of clear alternatives or specific evaluation methodologies tailored to different
Established by the 2013 Climate Action Plan, the Climate Task Force met with stakeholders from State,
local, Tribal, and territorial governments; private businesses; trade associations; academic organizations;
civil society; and other stakeholders to develop and provide recommendations in November 2014.
President's State, Local, and Tribal Leaders Task Force on Climate Preparedness and Resilience,
Recommendations to the President, (2014), available at https://obamawhitehouse.archives.gov/sites/default/
files/docs/task_force_report_0.pdf at 7 (last accessed Jan. 24, 2024). FEMA, acting on behalf of the
MitFLG and consistent with Executive Order 13690, published a draft of the Revised Guidelines for notice
and comment on February 5, 2015 at 80 FR 6530. During the public comment period, over 25 meetings
were held across the country with State, local, and Tribal officials and interested stakeholders to discuss the
Revised Guidelines. There were also 9 public listening sessions across the country that were attended by
over 700 participants from State, local, and Tribal governments, and other stakeholder organizations to
discuss the Revised Guidelines. The final Revised Guidelines were published on October 22, 2015 at 80
FR 64008. FEMA published a notice of proposed rulemaking to implement FFRMS initially in 2016 at 81
FR 57402 (Aug. 22, 2016) along with a notice of availability and request for comment on a FFRMS policy
at 81 FR 56558 (Aug. 22, 2016) and a notice of availability regarding a draft report at 81 FR 64403 (Sept.
20, 2016).
regions and thus failed to ensure region-specific evaluations and risks in applying
standards uniformly across diverse regions. The commenter stated a “one-size-fits-all
approach” overlooked the complexity of regional flood dynamics and other variabilities,
leaving critical questions unanswered. The commenter stated a tailored, regionally
sensitive strategy was imperative to ensure diverse regional needs and variations were
appropriately considered and integrated into any proposed policies.
FEMA Response: FEMA understands the commenter’s interest in ensuring
effective integration with local government systems and communications with nonFederal stakeholders but disagrees that the agency’s rulemaking and FFRMS policy are
lacking. Rather, the rule at § 9.11(d)(6) ensures the use of any local standard that may be
higher than that required under part 9 allowing for local differences to be considered and
implemented. The commenter further misunderstands FEMA’s edits to remove the term
FHBM from the regulatory text. FEMA is not eliminating FHBMs from the 8-step
process. As explained in the preamble to the NPRM, FEMA offers a range of flood risk
products under the NFIP and categorizes these products as “regulatory” or “nonregulatory.” Regulatory flood risk products are created subject to procedural due process
requirements, contain basic flood information, and are used for official actions such as
identifying properties subject to mandatory flood insurance purchase requirements, or
enforcing minimum building standards for construction in a floodplain in NFIP
participating communities. Non-regulatory flood risk products are not tied to mandatory
enforcement or compliance requirements for the NFIP and expand upon basic flood
hazard information. References to FEMA's regulatory products under the NFIP, such as
the FHBM, FIRM, and FIS are being eliminated in the regulatory text to allow flexibility
to encompass the full range of NFIP products (both regulatory and non-regulatory)
available for use with the 8-step process. For example, the existing § 9.7(c) prescribes a
sequence of steps to obtain the floodplain, flood elevation, and other information needed.

FEMA has made, and will continue to make, floodplain determinations partnering
with applicants in the 8-step decision-making process. As explained in the NPRM,
FEMA will use best available information, which may include information that is nonregulatory or FEMA preliminary flood hazard data. To be designated as the best
available information, the information must be at least as restrictive as the information
provided by effective FIRMs. FEMA published the FFRMS Job Aid to further explain
how the agency will make these determinations with the implementation of FFRMS.
Further, as previously explained, SLTTs can provide input into the determination.
As explained above, FEMA will use a more restrictive Federal, State, or local standard
for actions under part 9. This includes the use of local CISA data and methods that have
been adopted by a community for use in floodplain management, as long as such data
results in a more restrictive standard. Allowing the use of local data helps resolve the
commenter’s concerns that FEMA is not considering regional flood dynamics and other
variabilities.
3. Outreach
Comments: Two commenters discussed outreach associated with the rulemaking
process. One of the commenters expressed support for the extensive public outreach
completed between 2015 and 2021 on the FFRMS. The other commenter requested
FEMA reengage with States and local communities on the FFRMS proposed rule and
policy. The commenter noted the floodplain program is administered at the local level
and stated FEMA failed to conduct sufficient outreach or even hold a single public
meeting to help explain the elaborate and expansive changes. The commenter stated
local administrators and community officials deserved sufficient time to understand the
proposed rule and policy changes and develop informed comments on how it might affect
their programs. The commenter asked that FEMA perform additional outreach to educate

local floodplain administrators, elected officials, and emergency managers on the
proposed rule and policy.
Some commenters requested FEMA provide additional outreach, training,
technical assistance, and community engagement as part of the FFRMS implementation.
One commenter requested training, outreach, and coordination at the program,
departmental, interagency, and intergovernmental levels for successful implementation of
FFRMS. The commenter requested FEMA provide technical resources including
comprehensive guidance, maps and resources, and technical assistance. Another
commenter requested FEMA provide guidance and training materials to stakeholders to
ensure a comprehensive understanding and consistent application of the FFRMS. One
commenter requested FEMA develop accessible guidance and tools to facilitate and
improve the benefit-cost analysis for both nature-based solutions and hybrid green-gray
infrastructure approaches. Another commenter recommended FEMA conduct virtual and
in-person workshops and listening sessions to explain the FFRMS, changes to 44 CFR
part 9 (including the 8-step process), including applications for FEMA grants under
HMGP, FMA and BRIC. Another commenter stated appreciation for FEMA’s plans to
assist applicants with FFRMS and the 8-step process and encouraged the agency to seek
sufficient funding to adequately staff such an effort.
FEMA Response: As one commenter noted, FEMA completed significant
outreach and stakeholder engagement during the course of the FFRMS development and
rulemaking processes. FEMA believes those outreach efforts were sufficient and
additional public meetings for this rulemaking were not required.233 FEMA disagrees

Established by the 2013 Climate Action Plan, the Climate Task Force met with stakeholders from State,
local, Tribal, and territorial governments; private businesses; trade associations; academic organizations;
civil society; and other stakeholders to develop and provide recommendations in November 2014.
President's State, Local, and Tribal Leaders Task Force on Climate Preparedness and Resilience,
Recommendations to the President, (2014), available at https://obamawhitehouse.archives.gov/sites/default/
files/docs/task_force_report_0.pdf at 7 (last accessed Jan. 24, 2024). FEMA, acting on behalf of the
MitFLG and consistent with Executive Order 13690, published a draft of the Revised Guidelines for notice
with one commenter requesting the agency complete additional outreach to allow for
public comment. Local administrators and community officials had an opportunity to
submit comments on the proposed rule and policy changes, and FEMA notes some
communities did submit comments on this rulemaking. FEMA will perform additional
outreach to SLTT partners, stakeholders, and the public, including distribution of
additional resources to assist in FFRMS implementation.
FEMA agrees that successful implementation will require training, outreach and
interagency coordination and appreciates the commenters’ suggestions on ways to
achieve effective outreach. FEMA participated in the IWG on Flood Resilience to
support the implementation of the FFRMS. FEMA continues to collaborate with the
IWG and other interagency groups consistent with Executive Order 11988, as amended,
and the Revised Guidelines. FEMA will distribute additional resources to the public and
SLTT partners identifying what the FFRMS is, and how the agency will implement the
Executive Orders, and these resources will help applicants as they apply for FEMAfunded assistance programs. FEMA will also provide technical assistance through the
agency’s regional offices in support of FFRMS implementation. FEMA will also further
consider the outreach options shared by the commenters as the agency begins FFRMS
implementation after this rulemaking.
4. Equity and Environmental Justice
Comments: Commenters provided feedback on incorporating equity and
environmental justice into the 8-step process. While commenters indicated support for

and comment on February 5, 2015 at 80 FR 6530. During the public comment period, over 25 meetings
were held across the country with State, local, and Tribal officials and interested stakeholders to discuss the
Revised Guidelines. There were also 9 public listening sessions across the country that were attended by
over 700 participants from State, local, and Tribal governments, and other stakeholder organizations to
discuss the Revised Guidelines. The final Revised Guidelines were published on October 22, 2015 at 80
FR 64008. FEMA published a notice of proposed rulemaking to implement FFRMS initially in 2016 at 81
FR 57402 (Aug. 22, 2016) along with a notice of availability and request for comment on a supplementary
policy at 81 FR 56558 (Aug. 22, 2016) and a notice of availability regarding a draft report at 81 FR 64403
(Sept. 20, 2016).

FEMA’s rule and FFRMS policy as a means of bolstering the agency’s commitment to
addressing equity and environmental justice when addressing flood risks, others
requested additional clarification or provided recommendations on ways FEMA could
further advance equity and environmental justice in the rule and FFRMS policy.
Commenters requested the agency incorporate social, economic, and environmental
concerns into the 8-step process. These commenters also requested more outreach to
underserved communities and ways to address the increased costs of actions subject to
the FFRMS.
One commenter stated that flood impacts are not experienced equally across
communities in the United States, referencing policies such as redlining and lower tax
rates as forcing underserved populations into flood-prone areas and resulting in those
communities facing disproportionately high risk from flooding. The commenter stated
these communities have also been disproportionately impacted by the environmental
degradation resulting from floodplain development, underscoring the relationship
between floodplain management and environmental justice. The commenter stated
underserved communities have faced inequities in the distribution of flood risk reduction
resources, partially because of reduced capacity and opportunity to respond to flood
hazards compared to more well-resourced communities. The commenter stated that,
based on these inequities, any proposal to update floodplain management standards
would have an outsized effect on underserved communities. The commenter requested
that FEMA consider the implicit connections between the FFRMS and environmental
justice and the potential impact on Federally-protected treaty rights to floodplain
resources. The commenter also requested FEMA consider the long-term benefits—
including economic benefits—that can result from stricter floodplain management
standards and upfront investments to ensure more resilient development projects.

This commenter further recommended a regular environmental justice and Tribal
treaty rights assessment to review unforeseen burdens or missed opportunities with
environmental justice communities and Tribal treaty rights-holders, consistent with
Justice40 after the rule takes effect. The commenter requested FEMA include a structure
to ensure that Tribal, low-income, and frontline communities and communities of color
would be elevated in refining how the FFRMS is used and updated over time. The
commenter requested FEMA explore technical assistance opportunities to ensure support
for low-capacity communities. The commenter requested FEMA incorporate FFRMS
into the agency’s Justice40 efforts and prioritize funding to Tribes and underserved
communities to increase flood resilience, stating this prioritization was particularly
important in places where a more protective standard for the floodplain could raise
upfront project costs and impact affordability for low-income communities, taxpayers,
and rate payers. Another commenter raised similar concerns regarding equity,
environmental justice, and community engagement. The commenter stated that FEMA
has the opportunity to explicitly advance and promote environmental justice within the
rule and, consistent with Executive Order 14096, FEMA should provide opportunities for
the meaningful engagement of persons and communities with environmental justice
concerns who are potentially affected by Federal activities. Quoting Executive Order
14096, the commenter requested FEMA provide timely opportunities for members of the
public to share information or concerns and participate in the decision-making processes;
fully consider public input provided as part of the decision making processes; seek out
and encourage the involvement of persons and communities potentially affected by
Federal activities; and provide technical assistance, tools, and resources to assist in
facilitating meaningful and informed public participation. The commenter recognized
FEMA’s actions to incorporate meaningful engagement with environmental justice

communities, but requested FEMA recommit to that engagement through this
rulemaking.
Two commenters recommended FEMA revise the rule to ensure it explicitly
addresses environmental justice concerns. One of these commenters stated that despite
FEMA’s statement that the proposed rule would not have adverse impacts on
communities with environmental justice concerns, experience along with scientific and
policy analysis found that Federal policies such as the FFRMS would have distributional
impacts across sectors and communities, especially overburdened and underserved
communities. The commenter cited to specific studies reflecting the level of flood risk
increase for some disadvantaged communities and stated FEMA should ensure the final
rule advanced environmental justice by requiring the consideration of disproportionate
and adverse effects on communities with environmental justice concerns. Another
commenter stated similar concerns with FEMA’s statement in the proposed rule that the
agency did not expect the rule to have a disproportionate and adverse human health or
environmental effect on communities with environmental justice concerns and requested
FEMA explicitly advance and promote environmental justice considerations in the final
rule. The commenter stated that equity and environmental justice concerns must be
acknowledged and weighed in the analysis of all FEMA-funded projects. This
commenter requested guidance, tools, and resources to ensure best practices are used in
project planning and design. The commenter stated flood-prone land tended to be
cheaper, disregarding hidden long-term costs and recommended FEMA strengthen
transparency in the public’s awareness of flooding risks in any community development
and prioritize long-term safety over initial cost savings. Another commenter shared the
concern raised by these commenters that FEMA did not consider environmental justice
issues when drafting the rule and recommended FEMA actively promote environmental
justice in the final rule. This commenter also referenced Executive Order 14096 and

stated that climate-driven flood hazards were expected to disproportionately impact Black
communities in the South. The commenter further stated some estimates indicated the
Southeast stood to suffer the most economic damage due to climate change with
incalculable social costs. The commenter provided additional statistics regarding flood
risks and referenced a specific seawall project as an example of common failures to
adequately consider environmental justice concerns in the context of floodplain
adaptation.
FEMA Response: FEMA appreciates the commenters’ concerns on the increased
costs of projects, equity, environmental justice, and community engagement. FEMA is
committed to meaningful engagement on environmental justice and understands that
flood impacts are not always experienced equally across communities in the United
States. The agency has always incorporated natural environment, social concerns, and
economic aspects into the 8-step process as part of the practicability analysis, and this
rulemaking will not change that practice. FEMA’s revisions to part 9 reflect
consideration of the type and criticality of the action involved, the availability and
actionability of the data, and equity concerns in the implementation of Executive Order
11988, as amended. FEMA also has an agency-wide initiative focused on reducing
barriers and increasing opportunities so all people, including those from vulnerable and
underserved communities, can get help when they need it.234
FEMA reviews all proposed FEMA-funded actions for potential disproportionate
and adverse human health and environmental effects on communities with environmental
justice concerns using a standardized environmental justice compliance review process.
This final rule will not change that process. As an environmental justice review takes
place on all FEMA proposed actions, FEMA does not believe an additional assessment is

See https://www.fema.gov/emergency-managers/national-preparedness/equity (last accessed Jan. 24,
2024).
needed in conjunction solely with this final rule. Further, FEMA and the applicant may
consider potential impacts on Tribal treaty rights, where applicable, when evaluating the
practicability of alternatives in the 8-step process. As this would occur for all actions that
potentially impact Tribal treaty rights, FEMA does not believe an additional assessment
is needed in conjunction with this final rule.
Regarding the commenter’s request that FEMA provide a way for these
communities to engage on updates to the FFRMS, FEMA notes the agency is not solely
responsible for revisions to the FFRMS or the Revised Guidelines. The MitFLG in
consultation with the FIFM-TF will reassess the FFRMS annually, after seeking
stakeholder input, and provide recommendations to the WRC to update the FFRMS, if
warranted based on accurate and actionable science that takes into account changes to
climate and other changes in flood risk. The WRC shall issue an update to the FFRMS at
least every 5 years.235 Consistent with the requirements of Executive Order 11988, as
amended, the interagency will engage with SLTTs and the public, including Tribal
communities for any updates to the FFRMS.
As noted by the commenter, there are connections between the FFRMS and
environmental justice. The FFRMS seeks to continue to improve the resilience of
communities, including communities with environmental justice concerns, and help
preserve the natural values of floodplains. Likewise, under the 8-step process, FEMA
and the applicant may consider potential impacts on Tribal treaty rights, where
applicable, when evaluating the practicability of alternatives. FEMA appreciates the
commenter’s request to consider economic benefits from stricter floodplain management
standards and upfront investments, and the agency did consider the costs and benefits
associated with this rule, including the overall increased costs of FEMA projects,236 in the
Revised Guidelines, pg. 20.
For example, FEMA found that for a project with a 75% FEMA/25% applicant cost share, the cost to an
applicant to elevate a structure above the BFE to meet FEMA’s FFRMS requirements using the FVA+2
235
regulatory impact analysis provided on the public docket for this rulemaking.237 FEMA
believes that the benefits of preventing property damage and potentially saving lives
justify the costs of the rule. These benefits are a result of the improved protection of
structures and facilities due to increased elevation and floodproofing standards in
FEMA’s implementation of the FFRMS. This rule will help to ensure that Federal
investments are better protected from flood damage, and that the natural values of
floodplains are preserved.
Regarding the commenters’ concerns that FEMA provide opportunities for
engagement and participation in the decision-making process, FEMA completed
significant outreach in 2015 as part of the development and publication of the Revised
Guidelines. That outreach included over 25 meetings across the country with State, local,
and Tribal officials and interested stakeholders to discuss the Revised Guidelines and 9
public listening sessions that were attended by over 700 participants from State, local,
and Tribal governments, and other stakeholder organizations to discuss the Revised
Guidelines.238 FEMA believes those outreach efforts were sufficient.239 FEMA notes

(1.91 percent of construction cost) represented less than 0.5% of the total project cost, or an average of an
additional $4,775 in applicant cost share on an original total project cost of $1,000,000. See A Benefit
Analysis of Increased Freeboard for Public and Nonresidential Buildings in Riverine and Coastal
Floodplains, posted to the public docket of this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0003.
Public meetings were held at a range of locations across the country at varied times to maximize
participation. Meetings were held in Fairfax, VA; Seattle, WA; Dallas, TX; New York, NY; Ames, IA;
Biloxi, MS; Sacramento, CA; and Hampton Roads, VA. See generally Guidelines for Implementing
Executive Order 11988, Floodplain Management non-rulemaking docket available at
https://www.regulations.gov/docket/FEMA-2015-0006/document for the public meeting notices and
transcripts from the meetings.
239 Established by the 2013 Climate Action Plan, the Climate Task Force met with stakeholders from State,
local, Tribal, and territorial governments; private businesses; trade associations; academic organizations;
civil society; and other stakeholders to develop and provide recommendations in November 2014.
President's State, Local, and Tribal Leaders Task Force on Climate Preparedness and Resilience,
Recommendations to the President, (2014), available at https://obamawhitehouse.archives.gov/sites/default/
files/docs/task_force_report_0.pdf at 7 (last accessed Jan. 24, 2024). FEMA, acting on behalf of the
MitFLG and consistent with Executive Order 13690, published a draft of the Revised Guidelines for notice
and comment on February 5, 2015 at 80 FR 6530. The final Revised Guidelines were published on
October 22, 2015 at 80 FR 64008. FEMA published a notice of proposed rulemaking to implement
FFRMS initially in 2016 at 81 FR 57402 (Aug. 22, 2016) along with a notice of availability and request for
comment on a supplementary policy at 81 FR 56558 (Aug. 22, 2016) and a notice of availability regarding
a draft report at 81 FR 64403 (Sept. 20, 2016).
that, in addition to engagement on the FFRMS and rulemaking, FEMA’s 8-step process
incorporates community engagement into the process. FEMA will continue to notify the
public at the earliest possible time of the intent to carry out an action in a floodplain or
wetland and involve the affected and interested public in the decision-making process, as
detailed further in § 9.8, as well as provide the public notice with a statement
documenting the outcome of the 8-step process as detailed in § 9.12. Beyond all of the
foregoing, FEMA also provides public notice for proposed actions under NEPA and other
environmental planning and historic preservation laws and executive orders. This
rulemaking will not change those requirements.
Additionally, to further engage with communities in the FFRMS implementation,
FEMA will distribute resources identifying what the FFRMS is, and how the agency will
implement the Executive Orders. These resources will help applicants as they apply for
FEMA-funded assistance programs. FEMA’s regional offices will also provide technical
assistance in support of FFRMS implementation. FEMA anticipates these resources
could be used in project planning and design, as requested by one of the commenters.
Furthermore, FEMA has staff dedicated to assisting with implementation of
environmental justice planning and compliance, and will develop further resources to
assist in implementing environmental justice requirements.
FEMA agrees with the commenters that flood risk is not uniformly distributed.
However, the agency does not believe changes to the regulatory text or policy are
required to help ensure consideration of disproportionate and adverse effects on
communities with environmental justice concerns. FEMA currently reviews all proposed
actions in the 8-step process to identify and address any disproportionate and adverse
human health or environmental effects on communities with environmental justice
concerns to advance environmental justice. This process will not change as a result of
this rulemaking.

Additionally, through the 8-step process, FEMA identifies impacts such as the
flooding risks associated with the occupancy or modification of floodplains and wetlands
and the potential direct and indirect support of floodplain and wetland development that
could result from the proposed action. FEMA understands the commenter’s concerns
regarding potential hidden long-term costs of flood-prone land purchases. FEMA
believes the agency’s flood risk mapping efforts increase transparency in the public’s
awareness of flooding risks, and the agency’s floodplain management programs further
advance understanding of the impacts of development in floodplains.
FEMA appreciates the final commenter’s information and example of challenges
of failing to consider environmental justice concerns in Federal projects. FEMA
acknowledges that the project described by the commenter was not a FEMA-funded
project, but values the input provided by the commenter on the challenges faced when
failing to consider environmental justice. FEMA is committed to meaningful
engagement on environmental justice and seeking public input on proposed actions. As
explained above, FEMA seeks input from the public as part of its reviews under
Executive Orders 11988, 11990, 12898 and 14096, as well as NEPA, among other
environmental planning and historic preservation laws and executive orders and has
dedicated staff and a commitment to additional resources on environmental justice
specifically.
Comment: Three commenters requested edits to the regulatory text to advance
environmental justice with two suggesting specific edits. One commenter requested
FEMA revise § 9.2(d) to identify environmental justice and avoid disproportionate effects
to communities with environmental justice concerns as policy priorities. Another
commenter requested FEMA revise §9.6(b)(2) by adding language consistent with
HUD’s proposed rule to state that “when the proposed activity is located in or affects a
community with environmental justice concerns under Executive Order 12898, public

comment and decision making under this part shall be coordinated with consultation and
decision making under HUD policies implementing 24 CFR 58.5(j) or 50.4(l).” The
commenter also requested FEMA revise the principles in the proposed FFRMS policy to
include a new principle on environmental justice to state that FEMA would work to
reduce adverse impacts on communities with environmental justice concerns and engage
communities in decision-making processes if the Federal action is a concern to these
communities. This commenter requested FEMA revise § 9.11 to ensure FEMA would
promote mitigation and minimization measures to address any disproportionate and
adverse flood risks affecting these communities. Another commenter requested FEMA
revise § 9.10 to require consideration of disproportionate and adverse effects on
communities with environmental justice concerns, whether direct, indirect, or cumulative.
That commenter requested FEMA encourage proactive community engagement and
community-led planning within the final rule and recommended FEMA reassess part 9
and incorporate language to codify the agency’s commitments to environmental justice
and community engagement.
FEMA Response: FEMA does not believe the proposed edits to the regulatory
text or FFRMS policy are necessary to address the commenters’ environmental justice
concerns. As explained above, FEMA has always incorporated natural environment,
social concerns, and economic aspects into the 8-step process as part of the practicability
analysis. FEMA’s revisions to part 9 in this rulemaking reflect consideration of the type
and criticality of the action involved, the availability and actionability of the data, and
equity concerns in the implementation of Executive Order 11988, as amended. FEMA
also has an agency-wide initiative focused on reducing barriers and increasing
opportunities so all people, including those from vulnerable and underserved

communities, can get help when they need it.240 Further, as explained above, FEMA
reviews all proposed FEMA-funded actions for potential disproportionate and adverse
human health and environmental effects on communities with environmental justice
concerns using a standardized environmental justice compliance review process. This
final rule will not change that process.
FEMA does not believe the specific changes requested to revise § 9.2(d) to
identify environmental justice and avoid disproportionate effects to communities with
environmental justice concerns as policy priorities are necessary, given the agency’s
consideration of natural environment, social concerns, and economic aspects in the 8-step
process and the agency’s review of all proposed FEMA-funded actions under Executive
Order 12898 and 14096. FEMA further does not believe specific regulatory text is
required to implement Executive Orders 12898 and 14096, as the agency already
implements these requirements through other FEMA policies and processes.241 As with
the changes requested to § 9.2(d), FEMA does not believe that adding an additional
principle to the FFRMS policy is necessary, given the agency’s consideration of social
concerns, which may include equity, and other factors under § 9.9(c), and environmental
justice reviews conducted under Executive Orders 12898 and 14096 for proposed actions.
In § 9.11, FEMA details the requirements when actions must be located within or
will affect a floodplain or wetland. The provisions of that section, as proposed, can be
used to address flood risks affecting communities, including any disproportionate and
adverse flood risks. FEMA is also required to address any disproportionate and adverse
human health or environmental effects of actions on communities with environmental
justice concerns, to the greatest extent practicable and permitted by law.

See https://www.fema.gov/emergency-managers/national-preparedness/equity (last accessed Jan. 24,
2024).
241 See “Instructions on Implementation of the Environmental Planning and Historic Preservation
Responsibilities and Program Requirements,” pgs. 4 and 15, available at
https://www.fema.gov/sites/default/files/2020-07/fema_ehp_instructions_implementation_2018.pdf (last
accessed Apr. 22, 2024)
FEMA believes that the wording in § 9.10 is sufficient without further edits to
enable the Agency to identify potential direct and indirect adverse impacts associated
with the occupancy and modification of floodplains and wetlands and the potential direct
and indirect support of floodplain and wetland development that could result from the
proposed action. In Step 4, FEMA considers a wide variety of factors in identifying
potential impacts of an action that may be of relevance to communities with
environmental justice concerns, including pollution, public health, safety, and welfare,
and numerous others.
FEMA is not updating significant portions of the public notice process in this
rulemaking with respect to public comment and community engagement, as FEMA does
not believe the current notice process is inadequate. However, FEMA did update §
9.8(c)(4)(i) to incorporate notice through the internet or another comparable
method. When notice is provided electronically, FEMA will also provide links to
electronic versions of relevant maps. FEMA will continue to notify the public at the
earliest possible time of the intent to carry out an action in a floodplain or wetland and
involve the affected and interested public in the decision-making process, as detailed
further in § 9.8.
K. Emphasis on Nature-Based Approaches
1. General Support
Comments: Several commenters expressed specific support for FEMA’s revisions
to part 9 and the FFRMS policy to further incorporate nature-based solutions into the 8step process. Commenters stated that the emphasis on natural features and nature-based
approaches was important as these were innovative, sustainable solutions and aligned
with other Federal, State, and local goals. Commenters requested FEMA implement
these changes as soon as possible. Some commenters also requested that FEMA develop
additional resources for nature-based solutions. One commenter recommended that

FEMA require consideration of nature and nature-based approaches early in the 8-step
process. The commenter stated that doing so was critical to protecting floodplain values,
minimizing impacts to natural areas, ESA-listed species, and Tribal treaty rights, and
effectively building resilience to flood impacts. The commenter requested that FEMA
consider nature-based solutions in step 2 during public notice and that FEMA continue to
provide and publish the best examples of where nature-based approaches were applied
and led to flood risk reduction benefits. A commenter, while supporting FEMA’s
requirement to use natural features and nature-based approaches where possible,
recommended that FEMA clearly assert the criteria that would satisfy the use of natural
features and nature-based approaches either in the final rule or additional guidance.
FEMA Response: FEMA appreciates the commenters’ discussion of the
importance of natural features and nature-based approaches and agrees that it is important
to implement these changes with this final rule in a swift manner. FEMA’s policy will be
reassessed on a four-year cycle to ensure the approach continues to meet the goals of
Executive Order 11988, as amended.
Regarding the commenter’s request for consideration of nature-based solutions
early in the 8-step process, FEMA’s process at step 2 is to solicit any pertinent input from
the public after the location determination for the proposed action and before the agency
has made any decisions regarding practicable alternatives. Step 2 allows the public to
provide information on potential alternatives, including nature-based solutions. FEMA
notes the proposed action in step 1 may also incorporate nature-based approaches, which
the public can comment on in step 2. FEMA does not believe the language of the
regulatory text needs revision to address the concerns raised by the commenter as the
agency’s practice already incorporates the process outlined.
FEMA’s FFRMS policy provides more information on the criteria to satisfy the
use of natural features and nature-based approaches. FEMA plans to provide resources

that will incorporate additional examples of nature-based approaches and will coordinate
with other Federal agencies regarding the use of nature-based solutions as part of the
FFRMS implementation and beyond. FEMA will distribute these and other resources for
the public and SLTT partners to help applicants for FEMA-funded assistance
programs. FEMA’s regional offices will also provide technical assistance in support of
the final rule’s implementation.
2. Implementation of Nature-based Solutions
Comment: A commenter requested FEMA further amend part 9 to clarify that
that nature-based solutions must be considered in all cases, and documentation should be
provided where such approaches were ultimately found to be not practicable.
FEMA Response: FEMA believes that the final rule addresses the commenter’s
concerns as nature-based solutions must be considered in all instances where alternatives
can be considered in the 8-step process. FEMA’s procedures for review of its actions
under part 9 include documenting the 8-step process and will incorporate documentation
of nature-based solution consideration as part of that process.
Comments: Two commenters requested FEMA remove “where appropriate”
under Step 5, proposed § 9.6(b)(5), which stated that FEMA would integrate natural
systems, ecosystem services, and nature-based approaches “where appropriate.” In
contrast, two commenters requested FEMA recognize situations where nature-based
solutions would not be appropriate. A commenter wrote because Executive Order 11988,
as amended, recognized nature-based approaches were not always possible or practical,
that FEMA’s rule must recognize situations where nature-based approaches were
infeasible. The commenter stated that while nature-based approaches might be preferred,
they might not always provide the optimal or even the most cost-effective solutions and
recommended that FEMA incorporate language into part 9 requiring the agency to
recognize the role of State and local agencies in ultimately approving nature-based

approaches for addressing impacts to wetlands and floodplains when determining the
practicability of the alternatives set out. Another commenter stated while nature-based
and hybrid approaches could be prioritized, they may not be feasible to protect all
infrastructure.
FEMA Response: The language “where appropriate” is important, as not all
actions can integrate natural systems, ecosystem services, and nature-based approaches.
FEMA funds a range of actions, and not all of those actions can utilize nature-based
approaches. For example, FEMA funds structure repairs, and those types of repairs
generally could not utilize a nature-based approach as an alternative.
FEMA’s regulation and policy require the incorporation of nature-based
approaches into the development of alternative actions to the extent possible, consistent
with Executive Order 11988, as amended. In addition, FEMA’s FFRMS policy clarifies
that nature-based approaches can also be incorporated as minimization measures where
they are not possible as a practicable alternative. However, nature-based approaches will
only be implemented where appropriate. Nature-based approaches are subject to the
practicability analysis which relies on the factors identified in § 9.9(c). Those factors
include legal constraints such as where state or local law is conflicting. For an alternative
to be considered practicable, it must meet the need of the action FEMA is taking.
Additionally, § 9.11(d)(6) requires FEMA to utilize any higher Federal, State, or local
standards in the 8-step process.
Nature-based solutions apply to any FEMA-funded action that requires an
analysis of alternatives, not just those that are subject to the FFRMS (new construction,
substantial damage, or substantial improvement). The FFRMS applies to grants for
certain projects under FEMA programs such as IA, PA, and HMA programs, and grants
processed by FEMA’s GPD. All Federal agencies will utilize the Revised Guidelines for
their own FFRMS implementation.

Additionally, FEMA disagrees that additional language is required in part 9 to
recognize the role of State and local agencies in the process for determining when naturebased solutions may be practicable for a particular action. FEMA conducts the 8-step
process collaboratively with participation from SLTT partners and grant program staff,
with responsibilities and requirements for applicant participation in the 8-step process
outlined in the long-standing requirements of 44 CFR 9.17. FEMA will work with
SLTTs to determine what practicable alternatives may exist, including nature-based
solutions.
Comment: A commenter recommended that FEMA apply nature-based
approaches beyond the practicable alternatives analysis. The commenter stated that the
underlying assumption of the proposed rule was that nature-based approaches offered an
alternative to reduce the effects of a traditional development project. While supporting
the requirement to avoid floodplains and wetlands impacts, the commenter requested the
rule also acknowledge that floodplains and wetlands restoration is an important flood risk
reduction strategy in its own right. The commenter stated that Federal, State, and nonprofit entities are focused on restoration efforts and that their investments are needed to
accelerate the use of nature-based flood risk reduction strategies such as wetland and
floodplain restoration. The commenter acknowledged that some of their comments may
be outside the scope of the rulemaking, but stated that they submitted such comments
because floodplain regulations and management are critical to whether we have more,
less, or an indifferent amount of federal investments in nature-based approaches to
floodplain restoration across the nation. The commenter stated that the nation
desperately needs more floodplain restoration if we’re going to move from reacting to
disasters to being proactive and delivering on the multitude of co-benefits that healthy
floodplains provide.

FEMA Response: FEMA appreciates the commenter’s concerns but as explained
in the preamble to the NPRM, 44 CFR part 9 only applies to FEMA actions. The
FFRMS applies to grants for projects under FEMA programs such as IA, PA, and HMA,
and grants processed by FEMA’s GPD. All Federal agencies have their own
requirements to implement the 8-step process and will utilize the Revised Guidelines for
their own FFRMS implementation.
FEMA values the commenter’s focus on the importance of nature-based
approaches and will integrate these approaches where appropriate in actions under the 8step process. FEMA-funded actions largely are identified by State and local applicants
who design projects to meet their own communities’ needs, which may include
floodplain and wetland restoration. However, FEMA’s mission extends beyond these
actions, and the agency cannot eliminate the need to consider other types of actions such
as the repair and replacement of public structures and facilities, such as schools and
roadways. When evaluating such actions, FEMA will consider the practicability of
nature-based approaches consistent with this rule.
Comment: One commenter also stated support for FEMA’s use of nature-based
solutions in the rule but stated the lack of examples and lack of a clear hierarchy when
choosing among available solutions could diminish the impact of the agency’s
requirement. The commenter recommended FEMA require that alternatives protect
and/or restore natural features and ecosystem processes to the maximum extent possible
before resorting to other means; that nature-based approaches be incorporated to the
maximum extent possible after maximizing protection and/or restoration of natural
features and ecosystem processes; and allowing use of grey infrastructure only after
nature-based options were deployed to the maximum extent possible. Another
commenter wrote that where avoidance was not possible, landscape-level resilient design
including green infrastructure and nature-based solutions should be incorporated

meaningfully, even for activities that may not adversely impact floodplain function, to
benefit and improve the resilience of surrounding communities. A third commenter
recommended FEMA encourage and incentivize higher functioning nature-based
approaches on acquired properties, stating that mitigation project applicants were often
encouraged to simply grade and seed a parcel leaving ongoing maintenance concerns
with only a minimal natural benefit. This commenter also requested that FEMA require
documentation on the nature-based approaches considered and justification for the
inclusion or exclusion. Finally, another commenter recommended that FEMA
incorporate more information on when and why nature-based solutions would be
appropriate alternatives to consider in Steps 3 and 6 and highlight best practices, such as
wetlands preservation. The commenter added that part 9 should more specifically and
clearly promote these approaches to ensure that FEMA consistently identified and
pursued opportunities to restore natural and beneficial floodplain functions within or near
the project site as a part of potential risk mitigation strategies. The commenter
recommended FEMA add a subsection to § 9.11 discussing the benefits of these measures
and specifying approaches that could be incorporated into project plans.
Two commenters recommended FEMA revise § 9.9(b)(2) to specifically identify
wetlands restoration and preservation as a uniquely valuable complement or alternative to
grey infrastructure. Another commenter requested FEMA incorporate stronger language
on when and how to apply nature-based solutions and to highlight best practices, such as
wetlands preservation.
FEMA Response: FEMA does not believe the final rule requires revision.
FEMA’s actions are focused on protection of life, safety, and improved property and
FEMA does not typically fund actions that solely protect natural features and ecosystems.
As such, FEMA is not necessarily taking actions where alternatives to protect natural
features and ecosystem processes to the maximum extent possible are appropriate before

resorting to other means. FEMA believes the commenter’s concerns regarding wetlands
preservation are already addressed in this final rule. Wetland conservation and
restoration would be included under natural systems, ecosystem processes, and naturebased approaches provided in § 9.9(b)(2) as amended in this final rule. Additionally, the
existing practicability factors set forth in § 9.9(c), including the natural environment
factor, is sufficient to address the commenter’s concerns.
FEMA prefers not to limit the regulatory text and instead provide additional
information through FFRMS implementation resources to address the commenter’s
concerns. As explained above, the FFRMS policy does provide more information on the
criteria to satisfy the use of natural features and nature-based approaches and FEMA
plans to provide additional resources. These resources will incorporate additional
examples of and information on nature-based approaches, such as the value of Indigenous
knowledge and Traditional Ecological Knowledge (TEK). Where both a nature-based
solution and a grey infrastructure solution are practicable, FEMA plans to generally
prioritize the nature-based solution over a grey infrastructure solution as the commenter
recommends. In addition, FEMA’s FFRMS policy clarifies that nature-based approaches
can also be incorporated as minimization measures where they are not possible as a
practicable alternative. Further, as explained above, FEMA’s procedures for review of its
actions under part 9 include documenting the 8-step process and will incorporate
documentation of nature-based solutions considered as part of that process. FEMA will
distribute additional resources for the public and SLTTs as detailed above to further assist
applicants when applying for FEMA programs.
Comment: Another commenter asked how FEMA would determine when naturebased solutions should be used. The commenter stated the FHWA and many State DOTs
were developing or had developed their own guidance for these items for riverine and

tidal environments and that those agencies should be allowed to use their policies to fit
specific projects.
FEMA Response: FEMA appreciates the commenter’s concerns but as explained
in the preamble to the NPRM, 44 CFR part 9 only applies to FEMA actions. The
FFRMS applies to grants for projects under FEMA programs such as IA, PA, and HMA,
and grants processed by FEMA’s GPD. All Federal agencies have their own
requirements to implement the 8-step process and will utilize the Revised Guidelines for
their own FFRMS implementation.
FEMA’s approach for facilities is meant to be flexible. As section G.2 of
FEMA’s FFRMS policy states “[t]he FFRMS is a resilience standard. . . Resilience
measures include using structural or nonstructural methods to reduce or prevent damage;
elevating a structure; or, where appropriate, designing it to adapt to, withstand and
rapidly recover from a flood event.”242
Comment: A commenter wrote to commend FEMA for incorporating reduced
discount rates in the cost-benefit analysis of nature-based solutions. The commenter
requested FEMA continue bolstering accountability in the assessment process by
requiring practitioners to clearly describe the nature-based alternatives that were
considered, and in cases where they are ultimately deemed not practicable, to provide an
explanation and analysis for their reasoning as part of the final rule.
FEMA Response: FEMA appreciates the commenter’s support and will continue
to provide guidance to help communities recognize and capture the long-term benefits of
nature-based solutions and all resilience actions in evaluating practicable alternatives and
analyzing projects for cost-effectiveness.
FEMA’s regulation and policy require the incorporation of nature-based
approaches to the extent possible. In addition, FEMA’s FFRMS policy clarifies that

See FFRMS policy, pg. 8.

nature-based approaches can also be incorporated as minimization measures where they
are not possible as a practicable alternative. As explained above, FEMA’s procedures for
review of its actions under part 9 include documenting the 8-step process and will
incorporate documentation of nature-based solution consideration as part of that process.
Comment: A commenter requested FEMA more explicitly emphasize the
protection and restoration of floodplain functions and nature-based alternatives when
taking Federal actions in the floodplain by adopting rules that define the values of
floodplains, the ecosystem processes or functions of floodplains that generate those
values, and the attributes that are necessary for a floodplain to be “functional.” The
commenter stated FEMA’s rule failed to adequately describe the bio-geomorphology of a
functional floodplain and the physical attributes of the floodplain necessary to obtain
those values.
FEMA Response: FEMA appreciates the commenter’s suggestion to integrate
bio-geomorphology and attributes of functional floodplains into the regulation but does
not believe additional changes are appropriate to the final rule or FFRMS policy based on
the commenter’s concerns. FEMA’s definition of the floodplain in this rule is generally
consistent with the definition of floodplain in the NFIP and with FEMA and other
agencies’ historic approach to such definitions and is intentionally broad to help ensure
the agency can meet the needs of the action and protecting floodplains and wetlands
consistent with Executive Order 11988, as amended. For application of the FFRMS,
FEMA defines specific floodplains in part 9 as using one of the approaches detailed in
the FFRMS policy.
Concurrently, FEMA conducts other environmental and historic preservation
reviews to determine whether proposed actions could have other impacts to or within
floodplains and wetlands. FEMA is incorporating nature-based solutions into resilience
efforts where appropriate and believes the final rule will help accomplish this goal.

FEMA’s regulation and policy do require the incorporation of nature-based approaches to
the extent possible. In addition, FEMA’s FFRMS policy clarifies that nature-based
approaches can also be incorporated as minimization measures where they are not
possible as a practicable alternative.
Comment: A commenter stated nature-based design elements and nature-based
solutions allowed a structure to actively provide carbon sequestration, decrease the
magnitude and frequency of maintenance leading to increased structural lifespan. The
commenter recommended FEMA incorporate this alternative to traditional concrete as a
nature-based solution to serve as a mitigation measure and design alternative.
FEMA Response: FEMA will use a range of nature-based solutions where
possible and on a case-by-case basis depending on the project. Project location,
including whether coastal or not, will be a factor in determining the types of available
nature-based solutions FEMA may implement.
L. Other 8-Step Process Comments

1. Generally
Comments: One commenter provided recommendations to encourage resilient
design. The commenter supported FEMA’s proposed changes to §§ 9.9 and 9.11, which
in the commenter’s view would increase climate resilience, but recommended FEMA
require that the alternatives analysis process incorporate the consideration of an array of
flood mitigation practices and feedback from state and local leaders. The commenter
requested changes to §§ 9.9 and 9.11 to emphasize the effectiveness and benefits of
landscape-level methods as effective alternatives to increase flood resilience and as
mitigation for projects with no practical alternatives outside of the floodplain and
incorporate landscape-level design strategies in developing alternatives. The commenter
requested FEMA consider existing State, local, and non-governmental resilient design
guidelines for the agency’s own guidance and requested FEMA work with other Federal

agencies to develop case studies and examples of projects that achieve appropriate
resilience metrics in lieu of or in addition to elevation. Another commenter requested
FEMA look for impacts beyond the project boundaries and requested FEMA consider
off-site impacts and mitigation measures. The commenter recommended the rule’s
implementation and guidance emphasize the effectiveness and benefits of landscape-level
practices that encompass the full property, not just the physical building site, to mitigate
flood impacts for projects with no practical alternatives outside of the FFRMS floodplain.
The commenter requested FEMA offer guidance to include development practices, such
as No Adverse Impact or low-impact development, and landscape features and that any
guidance should encourage projects to assess opportunities to restore the natural and
beneficial functions of the floodplain and wetlands within or near the project site as a part
of potential risk mitigation strategies.
FEMA Response: FEMA agrees that the rule will increase climate resilience.
FEMA’s current alternatives analysis process incorporates consideration of a range of
flood mitigation practices. FEMA considers the following alternatives: a) no action; b)
alternative locations; and c) alternative actions, including alternative actions that use
natural features or nature-based solutions. Where possible, nature-based solutions,
including those at the landscape-level, shall be used. Where natural features and naturebased solutions are not practicable as an alternative on their own to meet the needs of
FEMA applicants, natural features and nature-based solutions may be incorporated into
actions as minimization measures.
As explained above, the flood minimization measures found in § 9.11 are reliable
methods of providing resilience to structures. FFRMS flood resilience measures consider
both current and future flood risks to better protect Federal investments. The elevation
requirement in § 9.11(d)(3) applies to structures and also allows floodproofing for nonresidential structures. The FFRMS policy provides further explanation that structures

that must be located within the FFRMS floodplain must be elevated or floodproofed to
the FFRMS flood elevation. Additionally, the policy clarifies further that facilities can
use elevation or any other appropriate minimization measure to protect the facility against
the FFRMS flood elevation.
FEMA does not believe the final rule requires edits to address the commenters’
concerns. As the commenter notes, FEMA’s policy provides more detail on how the
agency will implement nature-based solutions, and FEMA believes this level of detail is
best provided in policy and additional resources rather than directly in the regulatory text.
As explained above, communities provide input into the floodplain determination
for part 9. Pursuant to 44 CFR 9.11(d)(6), a more restrictive Federal, State, or local
standard will be used. This includes the use of local CISA data and methods that have
been adopted by a community for use in floodplain management, as long as such data
results in a more restrictive standard. FEMA values additional input from SLTT partners
and the public in the 8-step process. Projects subject to FFRMS are frequently designed
by such partners and will continue to be designed to meet local needs as appropriate.
FEMA will distribute additional resources for the public and SLTT partners
identifying what the FFRMS is, and how the agency will implement the Executive
Orders. These resources will help applicants as they apply for FEMA-funded assistance
programs. FEMA will also provide technical assistance through the agency’s regional
offices in support of FFRMS implementation.
Comment: A commenter requested FEMA consider the life of the project when
making flood risk protection decisions and emphasize the life of the project in the 8-step
process, not just in the footprint of the project but its impact on the surrounding area.
The commenter also requested the analysis of practicable alternatives result in an
adequate assessment and documentation of the life cycle impacts of nature-based
approaches and natural features.

FEMA Response: As explained further in the FFRMS Job Aid,243 service life is
considered in the determination of the FFRMS floodplain using CISA. Additionally, in
the 8-step decision-making process FEMA considers whether a proposed action would be
located within and whether it would affect a floodplain or wetland; FEMA avoids Federal
actions in floodplain and wetland locations unless they are the only practicable
alternatives and are able to minimize harm to and within floodplains and wetlands.
Further, the service life of the project is considered as part of the practicability
analysis, including consideration of maintenance requirements. FEMA’s procedures for
review of its actions under part 9 include documenting the 8-step process and will
incorporate documentation of nature-based solution consideration as part of that process.
2. Wetlands Identification and Floodplain and Wetlands Preservation
Comments: Some commenters requested additional clarification or provided
recommendations regarding how FEMA identifies and preserves wetlands as part of the
8-step process. Four commenters requested FEMA improve wetlands identification in
the 8- step process. One commenter noted that FEMA reviewers currently consulted
additional sources of information only if other listed sources provide inadequate
information, which could mean a FEMA reviewer would stop the assessment after
consulting the National Wetlands Inventory (“NWI”). The commenter stated the NWI
was only one imperfect source and could not provide a definitive determination, as the
NWI documented only the presumed presence of wetlands on a site and did not
accurately capture the full delineation of wetlands at ground-scale. Two of the
commenters requested FEMA update the regulatory text by directing reviewers to
conclude the assessment of whether or not an action was in a wetland after consulting
each of the four sources of information. Two other commenters agreed stating the

Available at https://www.regulations.gov/document/FEMA-2023-0026-0004 and
https://www.fema.gov/sites/default/files/documents/fema_ffrms-floodplain-determination-job-aid.pdf (last
accessed Jan. 24, 2024).
determination of the presence or absence of a wetland in the project site should not be
based solely on the NWI because of the NWI’s tendency to underestimate actual wetland
areas. Those commenters recommended FEMA encourage consulting various sources
beyond NWI. One commenter noted that involving a trained wetland delineator to assess
wetland indicators (soil, vegetation, hydrology) and delineate wetland boundaries was
crucial to prevent the loss of critical wetlands, especially considering their role in flood
water storage.
FEMA Response: FEMA did not change the existing regulation or process for
identifying wetlands. FEMA relies on the NWI to identify wetlands for the purposes of
applying the 8-step process under 44 CFR part 9 but will also accept other determinations
as provided by regulatory agencies or applicants. FEMA does utilize information from
on-site evaluations, including for locations not included in the NWI; however, requiring
an on-site evaluation of the presence of wetlands for every potential action would
severely delay the provision of disaster assistance to impacted communities.
FEMA is not changing the current process in step 4 in this rulemaking and the
implementation of the FFRMS would only expand the floodplain of consideration in step
4 of the 8-step process. FEMA did not eliminate consultation with the edits made to §
9.10. The edits made to § 9.10 are to the factors used to identify the impacts to proposed
actions. Those edits were made for consistency with other edits made in the rule.
Specifically, FEMA defines “natural and beneficial values of floodplains and wetlands”
to mean the features or resources that provide environmental and societal benefits.
FEMA added additional clarification that water and biological resources are often
referred to as “natural functions of floodplains and wetlands” and also incorporated
additional clarifying examples of water resource values, living resource values, cultural
resource values, and cultivated resource values for more consistency with the Revised
Guidelines and Executive Order 11988, as amended. FEMA also edited paragraph §

9.10(d)(2) for consistency with edits made in § 9.4 defining the natural and beneficial
values of floodplains and wetlands.
Comment: One commenter requested FEMA take action to preserve wetlands in
this rulemaking, requesting FEMA prioritize wetlands preservation and prevent harm to
wetlands to the greatest extent of the agency’s authorities. The commenter recommended
FEMA prioritize policy solutions that incentivize and fund the preservation of all
remaining wetlands and look to climate-smart wetland restoration to maximize benefits.
Noting the recent Supreme Court decision in Sackett v. EPA,244 the commenter requested
FEMA act through this rulemaking to provide whatever protection it can for wetlands.
The commenter explained the permitting process under section 404 of the Clean Water
Act prior to the Supreme Court decision for filling wetlands and stated the Sackett v. EPA
decision245 limited the scope of section 404.
The commenter requested FEMA incorporate prohibitions on certain types of
activities in wetlands similar to prohibitions on certain types of activities in floodplains
and provided the example of prohibiting HMA funding for new construction or
substantial improvements in a floodway or new construction in a coastal high hazard area
unless the action constituted a functionally dependent use or facilitates an open space use.
The commenter suggested FEMA add language to § 9.11(d)(1) to prohibit new
construction and substantial improvement in a wetland, except for a functionally
dependent use; or a structure or facility which facilitates an open space use and also
requested FEMA amend the HMA and PA Policy and Program Guides to reflect these
changes.
Two commenters requested FEMA add language to the regulatory text regarding
the agency’s requirement to restore and preserve both floodplains and wetlands. One

244
Sackett v. EPA, 598 U.S. 651 (2023).
Sackett v. EPA, 598 U.S. 651 (2023).

commenter wrote this requirement was implemented in § 9.11(f), where FEMA
established that if an action harmed or degraded a floodplain or wetland, the agency must
implement measures to restore the natural and beneficial values; however, the commenter
stated FEMA did not provide direction on the measures to be used and the extent to
which the natural and beneficial values must be restored. The commenter recommended
FEMA provide the criteria that would satisfy the restore and preserve requirement in the
regulatory text or in associated guidance. The commenter also recommended FEMA
require federal actions result, as fully as possible, in no net loss of both acreage and
function for floodplains and wetlands. The commenter recommended FEMA require the
type and extent of mitigation that applicants must undertake to satisfy the “restore and
preserve” language where floodplains and wetlands were known to be negatively
impacted. Another commenter requested FEMA add “or restore” after “preserve” in all
the appropriate places in the regulatory text.
FEMA Response: FEMA believes the commenters’ regarding wetlands
preservation concerns are addressed by the existing regulation. As stated in § 9.2(d) and
§ 9.11(e), FEMA’s policy is to preserve and enhance the natural values of floodplains and
wetlands when the agency has the opportunity to do so. FEMA’s longstanding
requirements in the final rule at 44 CFR 9.11(e) outline the agency’s requirements to
restore and preserve the natural and beneficial values served by floodplains and wetlands.
FEMA does not believe additional changes to the regulatory text or FFRMS policy are
needed to achieve the commenters’ goal of wetlands preservation.
FEMA did not propose to change the way that the 8-step process is applied to
wetlands, and is not doing so in this final rule. FEMA notes the definition of wetlands in
44 CFR 9.4 has always been much broader than that under the Clean Water Act (CWA).
Thus, under current practice the 8-step process has been applied to wetlands regardless of

their jurisdictional status under the CWA. FEMA believes this commenter’s concerns are
already addressed by the existing regulation.
Additionally, FEMA understand the first commenter’s desire to prohibit certain
actions in wetlands but again believes the current 8-step process adequately addresses the
commenter’s concerns. In the 8-step decision-making process, wetland sites are avoided
where possible. FEMA takes no action in a wetland unless the importance of the wetland
site clearly outweighs the requirements to246:
(i) Avoid the destruction or modification of the wetlands;
(ii) Avoid direct or indirect support of new construction in wetlands;
(iii) Minimize the destruction, loss or degradation of wetlands; and
(iv) Preserve and enhance the natural and beneficial values of wetlands.
FEMA notes the 8-step process governs FEMA actions and the Sackett case does
not apply in this context. While FEMA does consider new construction in wetlands, to
include the placement of fill, and will also consider alternatives, the 8-step process is not
an authorization or permitting process. Additionally, FEMA notes the process is only
applicable to actions funded or performed by FEMA and not more broadly applicable to
actions performed by SLTTs or individuals using non-Federal funding.
The revisions to part 9 in this final rule do not change FEMA’s long-standing
requirement as part of FEMA’s implementation of Executive Order 11988, as amended,
and Executive Order 11990 to only perform or fund actions within or affecting wetlands
if those actions are the only practicable alternative. FEMA considers alternative
locations, alternative actions, nature-based solutions, and the no action alternative under
the practicability analysis and will only perform or fund the action when there are no
practicable alternatives. FEMA will minimize any adverse impacts when doing so.
FEMA believes the commenter’s concerns requesting revisions to § 9.11(d)(1) to add

See 44 CFR 9.9(e)(3).

prohibitions on specific actions in wetlands are unwarranted given the agency’s longstanding process that is not changing as a result of the changes made in this final rule or
FFRMS policy.
FEMA’s mission is to help people before, during and after disasters. While this
focus on saving life and property allows for the restoration and preservation of the natural
and beneficial values served by floodplains and wetlands, that is not the primary mission
of the agency. Accordingly, the majority of FEMA’s actions within floodplain or
wetlands for repairs, replacement, or mitigation of risk to existing structures and
facilities. Requiring no net loss in area or function of floodplains or wetlands would limit
the agency’s ability to assist disaster-impacted communities, as well as reduce risk within
those communities. Additionally, requiring mitigation from disaster-impacted
communities may prolong or inhibit their recovery process. FEMA instead relies on the
alternatives analysis required by 44 CFR part 9 and takes no action within floodplains or
wetlands unless there is no practicable alternative.
FEMA recognizes the concerns of commenter seeking edits to the regulation and
guidance to provide criteria to satisfy the restore and preserve requirement, but again
disagrees that such edits are necessary in regulatory text or the FFRMS policy to achieve
the goals of floodplain and wetlands restoration and preservation. FEMA notes that in
this rulemaking the agency did not make changes to the restore and preserve
requirements in former § 9.11(e) other than updating the numbering (this rule moves
former § 9.11(f) to § 9.11(e)). FEMA will provide additional information and
implementation resources to SLTT partners, stakeholders, and the public as part of the
FFRMS implementation and will consider the commenter’s suggestions regarding
additional information on the criteria to satisfy the requirements of new § 9.11(e) when
finalizing those resources. FEMA will also consider issuing further guidance through the
agency’s grant programs on this point.

Regarding another commenter’s request to add “or restore” after “preserve”
throughout the regulatory text, FEMA notes that the regulatory text is consistent with the
long-standing policy outlined in 44 CFR 9.2. Specifically, it is the agency’s policy to
“restore and preserve the natural and beneficial values served by floodplains” and
“preserve and enhance the natural values of wetlands.” Where floodplains are addressed
in the regulatory text, “restore and preserve” is used, whereas “preserve” is used for
wetlands, except for § 9.11(e)(3), which combines the two priorities more broadly in
relation to natural and beneficial values of floodplains and wetlands. This language is
consistent with Executive Order 11988, as amended, which directs agencies to “restore
and preserve the natural and beneficial values served by floodplains,” and Executive
Order 11990, which directs agencies to “preserve and enhance the natural and beneficial
values of wetlands.” FEMA notes that the language in Executive Order 11990 omits
“restore” in connection to wetlands.
3. Public Notice
Comments: Some commenters requested additional edits to the public notice
requirements of the 8-step process. One commenter requested more specific guidance
about the types and amount of information the notice would provide and the extent to
which impacts will be identified and explained to the public and recommended FEMA
revise the regulation to require FEMA to make site maps electronically available with the
rest of its public notice. Two commenters requested the rule encourage community
engagement and community-led planning by requiring early engagement with affected
communities to understand the parameters of risks and vulnerabilities with engagement
extending into the project design and implementation. The commenter requested public
engagement go beyond the existing notice requirements to mandate proactive and
meaningful outreach to affected communities, allowing communities to provide input that
engineers and developers may not have and improving the overall flood risk knowledge

of communities. A third commenter recommended FEMA incorporate language to § 9.6
and § 9.8 to codify an emphasis on environmental justice by providing notice to
individuals with limited English proficiency and individuals with disabilities, as well as
communities or groups of people who are potentially affected and who are not regular
participants in Federal decision-making. Two other commenters agreed with the
recommendation for access to individuals with limited English proficiency.
FEMA Response: FEMA is not updating significant portions of the public notice
process in this rulemaking, as FEMA does not believe the current notice process is
inadequate. However, FEMA did update § 9.8(c)(4)(i) to incorporate notice through the
internet or another comparable method. During the public notice process, FEMA will
also provide links to electronic versions of relevant maps.
FEMA does accept public comments on proposed actions during both the early
and final public notice periods, addressed in §§ 9.8 and 9.12. Early public notice allows
the public to provide initial input on alternatives to be considered and potential issues
with a proposed action, which may include specific measures to minimize flood risk. The
final public notice allows for the public to review the decision-making process conducted
by the agency and provide any input before the action is taken. FEMA notes community
planning, such as hazard mitigation planning, can inform the 8-step process.
FEMA notes this final rule does not apply to a local community’s permitting
processes under the NFIP’s floodplain management regulations. Those regulations are
found at 44 CFR part 59 et seq. FEMA defines “action subject to the FFRMS” as “any
action where FEMA funds are used for new construction, substantial improvement, or to
address substantial damage to a structure or facility.” The FFRMS applies to grants for
projects funding the new construction, substantial improvement, or repair of substantial
damage under FEMA programs such as IA, PA, and HMA programs, and grants
processed by FEMA’s GPD.

FEMA routinely translates agency materials into languages other than English as
appropriate247 and consistent with FEMA’s Language Access Policy.248 Specifically
incorporating this policy into the rulemaking is not necessary, as FEMA’s process is set
forth in the Language Access Policy.249 That policy governs how the agency would
handle written translations, as appropriate and consistent with Executive Order 13166,
Improving Access to Services to Persons with Limited English Proficiency, the DHS
Language Access Plan, and Section 308 of the Stafford Act, 42 U.S.C. 5151, as
applicable. In accordance with those existing requirements, FEMA ensures appropriate
translations of public notices for the 8-step process.250 FEMA also ensures individuals
with disabilities have effective communication access to FEMA programs and activities,
consistent with requirements under sections 504 and 508 of the Rehabilitation Act of
1973, 29 U.S.C. 794, 794d, and FEMA’s Section 504 Implementation Plan.251
Comment: One commenter requested FEMA implement a public tracking system
of all FEMA actions that are subject to part 9. The commenter stated a tracking system
would ensure the public could assess the cumulative impacts of a proposed action. The
commenter also requested FEMA accept public comment on proposed actions.
FEMA Response: FEMA does accept public comments on proposed actions
during both the early and final public notice periods, addressed in §§ 9.8 and 9.12. Early

FEMA’s website has information and materials available in languages other than English, including
Spanish, French, German, Arabic, Hausa, Vietnamese, Portuguese, Chinese, Japanese, Hindi, Myanmar
(Burmese), Korean, Nepali, Somali, Swahili, Tagalog, Tongan, Creole, Fijian, and Russian. See
https://www.fema.gov/disaster/recover/languages (last accessed Mar. 28, 2024).
248 FEMA Policy FP-256-23-001, available at
https://www.fema.gov/sites/default/files/documents/fema_policy-language-access.pdf (last accessed Mar.
27. 2024).
249 FEMA’s Language Access Policy requires the agency to have processes in place to regularly identify
and assess the language assistance needs of the public and requires written translation of vital documents in
languages other than English based on assessments of need and capacity. See Principles A. and C. of the
policy available at https://www.fema.gov/sites/default/files/documents/fema_policy-language-access.pdf
(last accessed Mar. 27. 2024).
250 See e.g. “FEMA Public Notice: 4618-DR-PA-Pennsylvania Individual Assistance, Public Assistance
and HMGP” available at https://www.fema.gov/disaster/4618/publicnotice (last accessed June 11, 2024);
“DR-4673-FL EHP Public Notice 001” available at https://www.fema.gov/disaster-federal-registernotice/dr-4673-fl-ehp-public-notice-001 (last accessed June 11, 2024).
251 FEMA Section 504 Implementation Plan, available at https://www.fema.gov/sites/default/files/202006/fema_section-504-implementation-plan.pdf (last accessed Mar. 27, 2024).
public notice allows the public to provide initial input on alternatives to be considered
and potential issues with a proposed action. The final public notice allows for the public
to review the decision-making process conducted by the agency and provide any input
before the action is taken. The agency has updated the rule to allow for electronic
notification of public notices to increase accessibility to the public.
FEMA appreciates the commenter’s suggestion that the agency provide a public
tracking system for part 9. FEMA provides data on actions taken by the agency through
the OpenFEMA Data Sets.252 FEMA is not proposing any additional systems of record
with this rulemaking.
4. Impacts to Floodplains and/or Wetlands
Commenters provided feedback on FEMA’s review of and requirements
regarding impacts to floodplains and/or wetlands in part 9. While one commenter
provided support for the rule’s prohibition against locating a proposed action in a
floodplain or wetland if a practicable alternative exists outside the floodplain or wetland
in proposed §§ 9.6(b)(3) and 9.9(d)–(e) and agreed with FEMA’s approach of first
avoiding impacts, then minimizing any impacts that must occur, and restoring impacted
areas, other commenters provided recommendations for additional edits to the regulatory
text.
Comment: One commenter requested FEMA revise § 9.10 to require
consideration of disproportionate and adverse effects on communities with environmental
justice concerns, whether direct, indirect, or cumulative.
FEMA Response: FEMA appreciates the commenter’s concerns regarding equity
and environmental justice. The agency incorporates natural environment, social
concerns, and economic aspects into the 8-step process as part of the practicability

See FEMA, OpenFEMA Data Sets, https://www.fema.gov/about/openfema/data-sets (last accessed Mar.
25, 2024).
analysis (addressed in 44 CFR 9.9). FEMA’s revisions to part 9 reflect consideration of
the type and criticality of the action involved, the availability and actionability of the
data, and equity concerns in the implementation of Executive Order 11988, as amended.
FEMA also has an agency-wide initiative focused on reducing barriers and increasing
opportunities so all people, including those from vulnerable and underserved
communities, can get help when they need it.253
The impact analysis addressed in § 9.10 focuses on impacts to and from
floodplains and wetlands associated with a proposed action. As part of the evaluation of
impacts, FEMA considers the impacts addressed in § 9.10(d), which include factors that
evaluate the impact of flooding on public health, safety, and welfare. In addition to this
evaluation of flood hazard, FEMA reviews all proposed FEMA-funded actions for
potential disproportionate and adverse human health and environmental effects on
communities with environmental justice concerns using a standardized environmental
justice compliance review process. FEMA believes these current practices address the
commenter’s concern, and revisions to the final rule are not necessary.
Comment: One commenter requested FEMA identify both the impacts on the
floodplain and also the watershed in Step 4. The commenter noted that the subsequent
steps in the process described consideration of this. The commenter also requested
FEMA articulate and follow a “no adverse impact” principle. The commenter requested
FEMA specifically address cumulative impacts of an action, as this is especially
important when assessing flood impacts, as development actions and land use changes in
a watershed would alter the floodplain.
FEMA Response: FEMA is not changing the current process in step 4 in this
rulemaking. The implementation of the FFRMS would only expand the floodplain of

See https://www.fema.gov/emergency-managers/national-preparedness/equity (last accessed Jan. 24,
2024).
consideration in step 4 of the 8-step process. The changes made in § 9.10 are intended as
clarifying edits for consistency with other FFRMS implementing edits and are not
substantive policy changes. FEMA did not propose the policy changes suggested by the
commenter, and FEMA may take them under consideration in the future. Note that under
step 1, FEMA considers whether proposed actions can impact or be impacted by a
floodplain or wetland, not just whether or not the proposed action is located in a
floodplain or wetland. This provision addresses the commenter’s concerns regarding
actions in the watershed impacting floodplains and wetlands.
Comment: Another commenter requested FEMA retain the language in current §
9.10(c) stating that “Regional Offices of the U.S. Fish and Wildlife Service may be
contacted to aid in the identification and evaluation of potential impacts of the proposed
action on natural and beneficial floodplain and wetland values.” The commenter stated
that given USFWS’s particular expertise in understanding coastal and wetland
ecosystems, and the importance of maintaining the natural beneficial values of these
habitats, the commenter recommended retaining the consultation language “rather than
merely stepping it down to guidance.”
The commenter further recommended FEMA strengthen the language and require
FEMA at least contact the USFWS when making any such evaluation in case the USFWS
had concerns about or special understanding of the values of those habitats, including for
threatened and endangered species.
FEMA Response: FEMA is not changing the current process in step 4 in this
rulemaking and the implementation of the FFRMS would only expand the floodplain of
consideration in step 4 of the 8-step process. This rule does not eliminate consultation
with the edits made to § 9.10, as the existing regulatory text merely states the agency
“may” contact the USFWS for impact identification on the natural and beneficial values
of floodplains and wetlands. The edits made to § 9.10 removes this optional, internal

U.S. government process from the regulation; the process will be further outlined in
guidance. FEMA notes this section did not address FEMA’s consultation requirements
under the Endangered Species Act.
In this final rule, FEMA updates the definition of “natural and beneficial values of
floodplains and wetlands” to include consideration of features or resources that provide
environmental and societal benefits. The definition also includes examples of what
“natural functions of floodplains and wetlands” means. FEMA does not believe
additional edits to the final rule are required to address the commenter’s concerns
regarding coastal and wetland ecosystems and habitats for threatened and endangered
species, because these concerns are addressed in the definition at 44 CFR 9.4. The
definition provides some examples but is not all inclusive, and FEMA will consider
providing additional examples in guidance to further clarify and address the commenter’s
concerns.
FEMA edited § 9.10(d)(2) for consistency with edits made in § 9.4 defining the
natural and beneficial values of floodplains and wetlands. Specifically, the edits to §
9.10(d)(2) add providing habitats and enhancing biodiversity under the living resource
values FEMA will consider in step 4 of the 8-step process. In step 4, FEMA determines
impacts to the floodplain, which include changes to the hydraulics and hydrology of the
floodplain which informs potential impacts to protected species and their critical habitats.
FEMA will continue to perform Section 7 consultation under the Endangered Species Act
as required. FEMA reviews all applicable actions under the Endangered Species Act, and
such reviews are coordinated with the 8-step decision-making process.
Comment: While a commenter expressed appreciation of FEMA’s recognition of
the processes of storing floodwater and groundwater recharge, the commenter
recommended the rule clarify that floodwater storage and groundwater recharge may
have functions that extend beyond the time and area of a flood (such as the base flood).

The commenter stated floodwater storage and groundwater infrastructure placed in the
floodplain may result in continued inundation of floodplain areas. However, those types
of infrastructure may be required to convey stored floodwater to groundwater recharge
sites, minimizing impacts of flooding within the floodplain.
FEMA Response: Through the 8-step process, FEMA considers the impacts to
and from the floodplain including the natural and beneficial functions of the floodplain
and actions which may support development within the floodplain. Additional
clarifications are not required in the regulatory text to address the commenter’s concerns
as the 8-step process resolves these concerns overall.
Avoidance
Comments: Some commenters requested FEMA prioritize avoidance of
floodplains and wetlands as part of this rulemaking and FFRMS policy. Two
commenters wrote a primary intent of Executive Orders 11988, as amended, and 11990
was avoidance of floodplains and wetlands development and stated avoidance was the
most effective risk reduction strategy. Some commenters recommended FEMA issue
guidance, with one comment recommending the guidance describe how regional offices
should review projects post-Sackett v. EPA,254 and strengthen the practicable alternatives
analysis. Another commenter requested that the agency incorporate FFRMS guidance
into PA and HMA guidance.
One commenter wrote the FFRMS was a process to assess the siting and design of
a proposed action, rather than a mere elevation standard and requested FEMA promote
avoidance as the preferred alternative to actions that would modify or occupy floodplains
or wetlands. The commenter stated FEMA must consider design alternatives in Step 3 of
the 8-step process at § 9.9. Three commenters wrote elevation and floodproofing were
often prioritized instead and requested FEMA prioritize avoidance as the first alternative

Sackett v. EPA, 598 U.S. 651 (2023).

to actions that would modify or compromise floodplain function as the most effective risk
reduction strategy, rather than using elevation or floodproofing as first design
alternatives. Two commenters agreed that FEMA should strengthen Step 3 in § 9.9 to
emphasize avoiding federal actions in floodplains and wetlands where practicable.
FEMA Response: While FEMA made edits to § 9.2(d) to reorder the agency’s
actions to prioritize minimizing the impact of floods on human health, safety, and welfare
in this part, those edits do not change FEMA’s long-standing requirement as part of
implementation of Executive Order 11988, as amended, to only perform or fund actions
within or affecting floodplains if those actions are the only practicable alternative. See,
e.g., new 44 CFR 9.9(d). Through the 8-step process, FEMA will consider alternative
locations, alternative actions, nature-based solutions, and the no action alternative under
the practicability analysis. If there is no practicable alternative, FEMA may perform or
fund the action and will minimize any adverse impacts when doing so. FEMA believes
the commenters’ concerns are unwarranted given this long-standing process that is not
changing as a result of the changes made in this final rule.
FEMA agrees with one of the commenters that FFRMS is not merely an elevation
standard. As section G.2 of FEMA’s FFRMS policy states “[t]he FFRMS is a resilience
standard. Particularly in cases where elevation may not be feasible or appropriate for
facilities, the FFRMS floodplain, determined according to the process described in
section C of this policy, establishes the level to which a structure or facility must be
resilient. Resilience measures include using structural or nonstructural methods to reduce
or prevent damage; elevating a structure; or, where appropriate, designing it to adapt to,
withstand and rapidly recover from a flood event.”255
As explained above, FEMA has not proposed changes to the way that the 8-step
process is applied to wetlands. FEMA notes the definition of wetlands in 44 CFR 9.4 has

See FFRMS policy, pg. 8.

always been much broader than that under the Clean Water Act (CWA). Thus, under
current practice the 8-step process has been applied to wetlands regardless of their
jurisdictional status under the CWA. However, the 8-step process does not have the same
requirements of Section 404 of the Clean Water Act. While FEMA does consider new
construction in wetlands, to include the placement of fill, and consider alternatives, the 8step process is not an authorization or permitting process.
As previously explained, FEMA will distribute resources for the public and SLTT
partners and the public identifying what the FFRMS is, and how the agency will
implement the Executive Orders to further assist applicants for FEMA-funded assistance
programs. FEMA will also provide technical assistance through the agency’s regional
offices in support of FFRMS implementation. FEMA notes while the PA and HMA
guidance documents are instructive to applicants, FEMA’s regulations at 44 CFR part 9
control the agency’s actions for all of FEMA’s programs.
5. Zero/No Rise
Comments: Some commenters requested FEMA implement a “zero-rise” or “no
rise” standard in the 8-step process. Four commenters stated that FEMA should require a
“zero rise” standard for Federal actions where a regulatory floodway had not been
designated. The commenters noted FEMA’s edits to § 9.11 but recommended an
additional edit to not permit any increase in flood levels when a regulatory floodway had
not been designated.
Another commenter raised concerns about these requirements in the FFRMS
policy. The commenter stated that the requirement for FEMA-regulated floodplains
without a floodway in the FFRMS policy was unreasonable. The commenter wrote the
requirement to include all anticipated development was challenging for applicants, as
anticipated development might never happen or substantially change due to the project

approval process and recommended limits be placed on what was included in the
anticipated development to make the standard more reasonable.
FEMA Response: The changes made to § 9.11(d)(4) provide clarification that the
agency will continue to require the NFIP’s minimum standard (currently 1-foot rise) or,
consistent with § 9.11(d)(6), a more restrictive standard adopted by a community. This
has been a long-standing requirement of the NFIP.256 FEMA’s edits help ensure
consistency with the NFIP’s minimum standard while allowing the flexibility to utilize a
community’s own more restrictive standards.
FEMA did not propose to prohibit any increase in flood levels when a regulatory
floodway has not been designated, and prefers not to make such a change at this stage of
the rulemaking. The current process for determining increases in floodplains when a
regulatory floodway has not been designated is consistent with the requirements of the
NFIP and of many communities throughout the country. FEMA may take the
commenter’s suggestion under consideration in the future.
6. Prohibiting the Use of Fill
Comments: Some commenters also requested FEMA prohibit the use of fill for
elevation in the 8-step process. Commenter requested FEMA consider the impacts of
using fill to achieve elevation requirements. One commenter stated elevation could have
damaging impacts if implemented without considering stormwater runoff and that using
fill dirt to achieve floodplain elevation requirements could push stormwater onto
surrounding areas and worsen or create flooding problems for adjacent properties.
Another commenter stated that while intended to reduce flood risk, using fill dirt to
achieve floodplain elevation requirements could exacerbate flooding in the surrounding
area. This commenter also noted that placing fill in floodplains could severely impact
floodplain and wetland ecosystems that are critical habitat for endangered species. Some

44 CFR 60.3(c)(10).

commenters referenced a recent TMAC report that identified several concerns and
perverse incentives from the use of fill to achieve elevation and recommended FEMA
discourage the use of fill. Commenters requested FEMA revise § 9.11 to prohibit the use
of fill to achieve elevation requirements in the FFRMS floodplain. Where fill is
unavoidable, commenters requested FEMA require that a project retain the volume of
water onsite that is equivalent to the volume of fill used or have adequate compensatory
flood storage requirements. One commenter requested that in the Special Flood Hazard
Area, FEMA require elevation to meet FFRMS requirements to be on an open
foundation. Another commenter recommended that where the use of fill was necessary as
a last resort, added measures should be required to replace the on-site ecosystem benefits
of disturbed wetlands.
FEMA Response: FEMA appreciates the commenters’ concerns regarding the use
of fill and agrees that the impacts of its use must be considered. As part of Step 4 where
FEMA identifies impacts, the agency identifies any impacts to the floodplain which
would include increasing flood risks to adjacent areas. In § 9.11(d)(4) and (d)(6),
FEMA’s minimization requirements ensure that fill within regulatory floodways or
floodplains where no regulatory floodway is designated will generally not increase flood
levels within the community. These minimization requirements ensure consistency with
the NFIP or any more restrictive Federal, State, or local requirements. Until a regulatory
floodway is designated, no fill is permitted within the base floodplain unless it is
demonstrated that the cumulative effect of the proposed development, when combined
with all other existing and anticipated development, will not increase the water surface
elevation of the base flood more than the amount designated by the NFIP or the
community, whichever is most restrictive.257 Under § 9.11(d)(4), fill is also prohibited
within a designated regulatory floodway that would result in any increase in flood

44 CFR 9.11(d)(4).

elevation within the community during the occurrence of the base flood discharge.
FEMA prioritizes elevation on open works over elevation on fill in § 9.11(d)(7),
requiring elevation on open works rather than on fill in coastal high hazard areas and
elsewhere, as practicable.
The substance of the requirements in § 9.11(d) was not changed as part of this
final rule. FEMA did not propose to prohibit elevation on fill as suggested by some of
the commenters, and prefers not to implement such a change at this stage of the
rulemaking. FEMA will remain cognizant of the potential impacts of use of fill as part of
the project approval process as described above in the 8-step process, and may take the
comments under consideration for further action at a future date.
The revisions to part 9 do not change FEMA’s long-standing requirement as part
of implementation of Executive Order 11988, as amended, to only perform or fund
actions within or affecting floodplains and wetlands if those actions are the only
practicable alternative. See, e.g., new 44 CFR 9.9(d). No further edits are required to
part 9 to address the commenter’s concerns regarding fill in wetlands. As FEMA’s
current part 9 process currently prohibits actions in wetlands where there is a practicable
alternative, fill and dredge practices to achieve elevation or to construct
buildings/facilities in wetlands would only be allowed in those instances where there
were no alternatives and the need to perform the action outweighed agency’s
requirements outlined in 44 CFR 9.9(e)(2). New § 9.11(e) (current § 9.11(f)) requires
restoration where applicable.
FEMA appreciates the commenters’ reference to the recent TMAC
recommendations on the use of fill. The TMAC recommended FEMA consolidate and
clarify fill requirements for the NFIP in 44 CFR 60.3 and consider prohibiting the use of
fill as an elevation technique for residential and commercial structures in the SFHA (both
coastal and riverine); prohibiting fill as a floodproofing technique; and allowing a limited

amount of fill for bridges, dams, and wastewater treatment facilities along with other uses
functionally dependent on proximity to water. The TMAC also recommended that
FEMA (1) require communities participating in the NFIP to quantify and put on file the
impacts of proposed fill and other development on flood stages and the environment prior
to issuing fill permits and (2) require notice to property owners and appropriate
environmental agencies when increases in flood elevation or potential negative
consequences were found and could not be mitigated.258 These recommendations are
clearly focused on the NFIP, not the 8-step process in part 9 in this rulemaking. As
described above, the 8-step process contains sufficient flexibility to allow FEMA to
address concerns related to use of fill during Steps 4 and 5 of the process. While FEMA
is considering these recommendations consistent with the NFIP requirements, the agency
notes TMAC recommendations are not binding on FEMA.
Comment: One commenter wrote requesting that FEMA eliminate Letter of Map
Change (LOMC) exceptions for sites. The commenter cited HUD’s proposed rule and
stated that an exception could incentivize adding fill in a floodplain, which could lead to
a reduced floodplain function, as well as increased flood risk to surrounding properties.
FEMA Response: FEMA’s regulation does not specifically except areas or sites
where FEMA has issued a Letter of Map Change (LOMC) from the 8-step process. In
their original regulation, HUD did have a specific exception for any non-wetland site in a
floodplain for which FEMA had issued a final Letter of Map Amendment (LOMA), final
Letter of Map Revision (LOMR), or a final Letter of Map Revision Based on Fill
(LOMR-F) that removed the property from a FEMA-designated floodplain. The
exception under HUD’s original regulation also included conditional LOMAs, LOMRs,
or LOMR-Fs if HUD or the responsible entity’s approval was subject to the requirements

See TMAC 2023 Interim Report, available at
https://www.fema.gov/sites/default/files/documents/fema_rm-tmac-2023-interim-report-30OCT2023.pdf
(last accessed Mar. 28, 2024).
and conditions of the conditional LOMA or LOMR.259 FEMA notes that HUD removed
these exceptions from 24 CFR 55.12(c)(8)(i) and(ii) in recent updates to their
regulation.260 As FEMA did not except those areas in the regulation, the FEMA rule does
not require revision for the FFRMS floodplain to apply and for FEMA to conduct the 8step process if those areas are determined to be within the expanded floodplain. FEMA
notes the changes to part 9 in this final rule do not apply to the NFIP’s regulations on
mapping and changes to FEMA maps. Those regulations are found at 44 CFR part 70 et
seq.
7. Practicability
Commenters also recommended changes to the practicability analysis in the 8step process.
Comments: A commenter stated concern that actions in floodplains and wetlands
would be allowed only as a last resort under the rule and recommended that FEMA revise
the regulations to more strongly clarify to officials implementing the regulations that
actions in floodplains, especially those on already urbanized lands, could be allowed,
provided flood resilience measures were employed. Conversely, another commenter
recommended that FEMA prioritize avoidance as the first alternative to actions that
would modify or compromise floodplain function as the most effective risk reduction
strategy. The commenter recommended that where avoidance cannot be achieved,
resilient design should be incorporated meaningfully. A third commenter stated the
feasibility analysis should consider whether right-of-way is not available and
condemnation is required.
FEMA Response: The revisions to part 9 do not change FEMA’s long-standing
requirement as part of implementation of Executive Order 11988, as amended, to only

259
See 24 CFR 55.12(c)(8)(i) and (ii) as of March 28, 2024.
89 FR 30850 (Apr. 23, 2024).

perform or fund actions within or affecting floodplains if those actions are the only
practicable alternative. See, e.g., new 44 CFR 9.9(d). This rule does not alter the 8-step
process requirement to evaluate practicable alternatives, which includes consideration of
locations outside of the floodplain or wetlands. Through the 8-step process, FEMA
considers alternative locations, alternative actions, nature-based solutions, and the no
action alternative under the practicability analysis. If there is no practicable alternative,
FEMA will perform or fund the action and will minimize any adverse impacts when
doing so. FEMA believes the commenters’ concerns are unwarranted, given this longstanding process that is not changing as a result of the changes made in this final rule.
Further, the practicability factors, which are outlined in 44 CFR 9.9(c), include the
consideration of legal constraints, which would generally encompass the acquisition of
right-of-way for proposed actions.
Comment: A commenter requested specific revisions to § 9.9 to include “the
presence of threatened or endangered species or their critical habitat” as an example
under “natural environment.” The commenter also requested FEMA include “the
presence, absence, and/or effectiveness of local or state land management plans to
conserve natural values of the floodplains and wetlands at issue.” Finally, this
commenter requested FEMA include “participation of the impacted community or
communities in the Community Rating System program” when analyzing the
practicability of alternatives to proposed actions in floodplains or wetlands. The
commenter requested FEMA edit § 9.9 to include examples of floodplain values,
including “wildlife habitat and connectivity, including for threatened and endangered
species” in § 9.9(e)(2)(iv) and § 9.9(e)(3)(iv).
FEMA Response: FEMA respectfully declines the commenter’s request, as the
agency believes many of these examples would be covered under the existing regulatory
text, and no edits are required in this final rule to address these concerns. Specifically,

the final rule lists “natural environment” and includes “habitat,” which addresses the
commenter’s concerns about the inclusion of threatened and endangered species or their
critical habitat. “Social concerns” includes “land patterns;” under these factors, FEMA
does consider local or state land management plans when considering practicability.
FEMA appreciates the commenter’s interest in the agency’s Community Rating System
(CRS) program. FEMA notes that the commenter’s concerns regarding threatened and
endangered species and their critical habitats is addressed in the CRS program through
credits for communities that protect threatened and endangered species.261 A
community’s participation in the CRS program does not impact an action’s practicability
under part 9. Updating part 9 to incorporate the CRS program is inappropriate, as the
CRS program provides discounts to individual policyholders in NFIP participating
communities and as explained above, part 9 applies only to Federally-funded actions.
Further, FEMA’s regulatory text is consistent with the Revised Guidelines.
Wildlife habitat and connectivity are already incorporated into the rule in the definition of
“natural and beneficial values of floodplains and wetlands.” Specifically, that definition
references “Living Resource Values” as “providing habitats and enhancing biodiversity
for fish, wildlife, and plant resources.” This language encompasses the wildlife habitat
and connectivity requested by the commenter, and no edits are required to the final rule.
M. Other Comments
Comments: Two comments offered alternatives to the 8-step process outlined in
part 9. One commenter recommended retreating a mile from every coast, river, and flood
area and making those areas public lands, swamps, or flood zones and that FEMA
prohibit rebuilding when buildings are destroyed due to sea level rise and convert those
areas into their suggested publicly owned buffer. Another commenter recommended

See CRS Coordinator’s Field Manual 2017 and 2021 Addendum, available at
https://www.fema.gov/floodplain-management/community-rating-system (last accessed Apr. 4, 2024).
using eminent domain to reclaim flood damaged structures and reclaim lands, wetlands,
swamps, and other properties, allowing these areas to naturally buffer and absorb
flooding. The commenter stated private property rebuilding should not take place in a
flood zone using taxpayer dollars, subsidies, grants, or any form of tax revenue.
FEMA Response: FEMA did not propose, and does not believe it would be
appropriate to implement, a standard that categorically prohibits rebuilding within one
mile of every coast, river, and flood area.
Comment: Another commenter stated there would likely be instances where the
cost of floodproofing or elevating Federal and non-Federal buildings with the new
FFRMS floodplain would be found to be unreasonable. The commenter recommended
against any kind of automatic seizure or destruction in those instances, but rather
suggested developing a process in which factors could be considered in determining the
future disposition of such buildings and encouraged the ability to grandfather-in some
buildings so they could maintain their functionality until such a time as they actually
suffered flood damage.
FEMA Response: Part 9 only applies to FEMA actions and the FFRMS only
applies to FEMA actions that are subject to the FFRMS. FEMA defines “action subject
to the FFRMS” as “any action where FEMA funds are used for new construction,
substantial improvement, or to address substantial damage to a structure or facility.”
Where part 9 applies, FEMA has always incorporated natural environment, social
concerns, and economic aspects into the 8-step process as part of the practicability
analysis. Specifically, if the minimization measures for a proposed action were found to
be “unreasonable,” that may fall under the economic aspect of the practicability analysis.
In these instances, FEMA has not proposed automatic seizure or destruction procedures
in the regulatory text or policy. FEMA also works with program applicants to consider

the appropriate service life for the action during the 8-step decision-making process to
better understand the flood risks and safety prioritization for individual actions.
Comment: A commenter asked if FFRMS would be used as a selection tool for
grant projects. The commenter noted that FEMA has previously considered a project’s
scope or service area for funding and stated the increase in floodplains from NOAA Atlas
14 revised flood maps would limit federal funding for some projects due to previous
design criteria used on the downstream channels or development.
FEMA Response: FEMA will not use the FFRMS flood elevation as a selection
tool for grant projects; rather, it is a design requirement for grant projects. Issues related
to or impacting a project’s scope or service area remain unchanged. Finally, FEMA
disagrees with the commenter’s statement that revised flood maps would limit federal
funding for some projects. Revised flood maps where the floodplains increase would
have no effect on project eligibility.
Comment: One commenter inquired whether the agency’s findings would be
beneficial to the “central Arizona project” given the dangers of flooding to the canal.
FEMA Response: FEMA appreciates the commenter’s interest in this regulation.
The FFRMS CISA State of the Science Report provides a review and update of the bestavailable, actionable science that can support application of the Climate-Informed
Science Approach (CISA).262 FEMA respectfully refers the commenter to the State of
the Science Report and other tools to determine whether the FFRMS policy initiative
more broadly may have an impact on a local project of interest. FEMA’s part 9 controls
the agency’s implementation of Executive Order 11988, as amended, and Executive
Order 11990.

Available at https://www.whitehouse.gov/wp-content/uploads/2023/03/Federal-Flood-RiskManagement-Standard-Climate-Informed-Science-Approach-CISA-State-of-the-ScienceReport.pdf?trk=public_post_comment-text (last accessed Jan. 24, 2024), https://www.fema.gov/floodplainmanagement/intergovernmental/white-house-flood-resilience-interagency-working-group (last accessed
Jan. 24, 2024), and posted to the public docket for this rulemaking at
https://www.regulations.gov/document/FEMA-2023-0026-0007.
Comments: Some commenters requested FEMA consider implementing the
FFRMS for the NFIP. Another commenter requested FEMA require disclosure of past
flood damages for FEMA-funded residential projects.
FEMA Response: As explained above, FEMA cannot accommodate the
commenter’s request to integrate the FFRMS into the minimum floodplain management
standards for the NFIP because it is beyond the scope of this rulemaking. The NFIP is a
program through which property owners in participating communities can purchase
Federal flood insurance as a protection against flood losses. In exchange, a community
must adopt and enforce floodplain management regulations that incorporate NFIP
minimum floodplain management criteria developed by the Administrator. Further
information regarding FEMA’s minimum floodplain management standards for the NFIP
can be found at 44 CFR part 59 et seq. Any update to those standards would require a
rulemaking to revise the appropriate regulatory sections of the CFR. By contrast, the
FFRMS, as implemented by this rulemaking, only applies to actions where FEMA funds
are used for new construction, substantial improvement, or repairs to address substantial
damage to structures and facilities.
Requiring disclosure of past flood damage for FEMA-funded residential projects
is beyond the scope of this rulemaking. However, FEMA notes disclosure of prior flood
damage, flood claims or losses, and the status of repetitive loss properties is important,
and FEMA is pursuing options to require such disclosure, as evidenced in FEMA’s 2023
legislative proposal submitted to the 118th Congress.263
N. Accessibility
In the NPRM, FEMA requested specific comment on accessibility issues. FEMA
sought public comments on the impact of the proposed elevation requirement on the

See https://www.fema.gov/flood-insurance/rules-legislation/congressional-reauthorization/legislativeproposals (last accessed Jan. 24, 2024).
accessibility of covered facilities under the Fair Housing Act, the Americans with
Disabilities Act (ADA), the Architectural Barriers Act (ABA), and section 504 of the
Rehabilitation Act of 1973. FEMA invited comments on strategies the agency could
employ to ensure accessibility requirements were met for properties that would be
impacted by the rule. Additionally, FEMA invited comments on the cost and benefits of
such strategies, including data that supported the costs and benefits. FEMA received five
comments on accessibility. Some commenters provided FEMA with recommendations
on strategies regarding accessibility, while other expressed concerns with potential
increased costs of accessibility and elevation along with potential conflicts regarding
accessibility laws.
Comments: One commenter recommended FEMA consider accessibility concerns
as a factor in favor of selecting alternatives that minimize residential and essential
structures within the floodplain. The commenter also stated projects should be designed
to maximize both access and resilience by practicing avoidance to the extent practicable,
consistent with Executive Order 11988. Another commenter recommended FEMA issue
design and regulatory guidance to address concerns or challenges over the effects of
proposed elevations on accessibility of covered facilities, particularly those intended for
use by disabled and elderly populations and stated guidance could ensure that
floodproofing would not hinder accessibility. A third commenter noted that elevating
structures was not always feasible, practical, or advisable and that seeking to meet both
elevation and accessibility requirements created even more challenges and increased
costs, sometimes rendering certain projects infeasible. Referencing HUD’s Fair Housing
Act’s guidance on BFE challenges, the commenter recommended FEMA recognize the
impracticability of requiring elevation in certain situations consistent with HUD’s
guidance. The commenter cited increased cost concerns and unintended consequences on
individuals who rely on accessible housing.

Some commenters stated FEMA’s request for comment on accessibility concerns
indicated a conflict with implementation of the FFRMS and laws governing accessibility.
One commenter stated FEMA admitted the rule could potentially conflict with several
acts aimed at protecting vulnerable populations such as the disabled and elderly. Another
commenter stated the agency indicated the proposed rule threatened to violate the Fair
Housing Act, the Americans with Disabilities Act, the Architectural Barriers Act, and
section 504 of the Rehabilitation Act of 1973 and recommended FEMA identify and
either exclude or limit these scenarios when applying the proposed standard.
FEMA Response: Through the final rule, FEMA seeks to prioritize minimizing
the impact of floods on human health, safety, and welfare, including those of vulnerable
populations. FEMA’s request for comment in this area focused on ways the agency
could further reduce or mitigate the impacts of the FFRMS implementation on these
populations. Accessibility concerns would generally fall under social concerns and legal
constraints in assessing practicability in the 8-step process. FEMA considers both the
accessibility of a structure and the accessibility to community resources for those
impacted. FEMA only takes action in the floodplain if there is no practicable alternative.
Further, if an alternative would render a building inaccessible, it would not be a
practicable alternative. FEMA agrees with one of the commenters that proper guidance
can help reduce the impacts of elevation on accessibility. FEMA’s existing guidance
documents address concerns associated with the effects of elevation on accessibility.
FEMA may address any additional specific concerns regarding FFRMS implementation
as they arise on a case-by-case basis or via additional guidance.264

See e.g. “Hazard Mitigation Assistance Guidance,” pgs. 59-60 available at
https://www.fema.gov/sites/default/files/documents/fema_hma_guide_08232023_v1.pdf (last accessed
April 2, 2024), “Public Assistance Program and Policy Guide, pg. 151 available at
https://www.fema.gov/sites/default/files/documents/fema_pappg-v4-updated-links_policy_6-1-2020.pdf
(last accessed Mar. 12, 2024).
FEMA appreciates the importance of providing affordable, accessible housing.
FEMA believes that the agency’s policy approach provides flexibility to address these
concerns. For example, construction of ADA-compliant access facilities or ramps is an
eligible cost for FEMA’s HMA structure elevation and mitigation reconstruction projects
for homes. FEMA considered the costs and benefits associated with this rule, including
the overall increased costs of FEMA projects, in the regulatory impact analysis provided
on the public docket for this rulemaking.265 FEMA believes that the benefits of
preventing property damage and potentially saving lives justify the costs of the
rule. These benefits are a result of the improved protection of structures and facilities due
to increased elevation and floodproofing standards in FEMA’s implementation of the
FFRMS. This rule will help to ensure that Federal investments are better protected from
flood damage, and that the natural values of floodplains are preserved. FEMA notes any
increased costs are generally eligible for funding under FEMA’s assistance programs
subject to cost share requirements, including accessibility needs.
Regarding other conflicting laws, the commenters do not accurately state FEMA’s
position. FEMA sought comment on how the implementation of FFRMS may interact
with specific legislation and strategies FEMA could employ to ensure accessibility needs
were met. FEMA’s policy approach provides flexibility to accommodate the specific
needs of the vulnerable populations the commenter references, and FEMA believes the 8step process requirements, specifically in considering the practicability of an action and
potential impacts from the action, detailed above help resolve accessibility concerns.
O. Regulatory Impact Analysis Comments
FEMA received several comments specific to the agency’s RIA associated with
the rulemaking.
1. Alternatives
See https://www.regulations.gov/document/FEMA-2023-0026-0013. Specifically, see section 7.11.5
“Elevation Requirement Impacts on THUs.”
Comment: Commenters requested additional clarification and recommended edits
to the alternatives detailed in the RIA. Specifically, two commenters stated FEMA
should consider alternatives to the proposed standard and the various FFRMS
approaches. The commenters stated that analyzing alternatives would include identifying
cases where imposing the standard would create new risks and costs greater than the risk
the standard sought to mitigate. The commenters further requested FEMA delay the final
rule until these analyses were completed.
FEMA Response: Executive Order 11988, as amended, directs agencies to
perform or fund actions within or affecting floodplains only if those actions are the only
practicable alternative. Through the 8-step process for individual actions, FEMA
considers alternative locations, alternative actions, nature-based solutions, and the no
action alternative under the practicability analysis. If there is no practicable alternative,
FEMA will perform or fund the action and will minimize any adverse impacts when
doing so.
On a project basis, FEMA has consistently leveraged benefit-cost analysis in grant
programs requiring evaluation of cost effectiveness, such as those programs under Hazard
Mitigation Assistance, and will continue to do so along with minimum standards for
floodplain management across the agency’s programs to help ensure that Federally
funded projects are both cost-effective and result in more resilient communities.
Additionally, during the 8-step process, FEMA will also evaluate the impacts from the
proposed action (in Step 4) when determining the appropriate resilience or minimization
measures in Step 5. The flexibility of the 8-step process allows FEMA to work with
SLTTs to select the appropriate minimization measure for the action. FEMA requires that
only practicable means to minimize harm to or within the floodplain are required for
compliance with 44 CFR 9.11, including consideration of economic aspects. If, in the
course of implementation, FEMA identifies categories of projects for which the standard

proves to be generally impracticable, FEMA may take appropriate action – such as
issuing further guidance – at that time.
FEMA believes that the benefits of preventing property damage and potentially
saving lives justify the costs of the rule. These benefits are a result of the improved
protection of structures and facilities due to increased elevation and floodproofing
standards in FEMA’s implementation of the FFRMS. This rule will help to ensure that
Federal investments are better protected from flood damage, and that the natural values of
floodplains are preserved.
Comment: A commenter stated the RIA did not present information on the
population at risk, or the residual risk to human life associated with each FFRMS
approach. The commenter stated that FEMA should follow the requirements of the
Principles and Requirements for Federal Investments in Water Resources (March 2013)
and accompanying Interagency Guidelines266 to provide information to owners and
residents of flood-prone property the residual flood risk and availability of flood
insurance. The commenter recommended that FEMA provide an estimate of the
population at risk by FFRMS approach and an estimate as to how this would change by
approach.
The commenter also requested information on FEMA’s statements in the RIA
regarding potential for lives saved by the rulemaking. The commenter stated that FEMA
provided statistics on the number of fatalities from flash and river flooding but was
unable to estimate how many of those fatalities would be avoided if the rulemaking were
implemented. The commenter also stated that FEMA did not provide a quantification
that would allow for a comparison among the FFRMS approaches. The commenter

Available at
https://obamawhitehouse.archives.gov/sites/default/files/final_principles_and_requirements_march_2013.p
df (last accessed Jan. 24, 2024) and
https://obamawhitehouse.archives.gov/sites/default/files/docs/prg_interagency_guidelines_12_2014.pdf
(last accessed Jan. 24, 2024).
wrote that FEMA did not clarify whether the CISA would be safer than the FVA or
0.2PFA or whether elevating and floodproofing properties were necessarily safer than the
no action alternative. The commenter further stated that floodproofing and elevation
could instill a false sense of security that encouraged people to not evacuate or delay their
departure in a flood. The commenter recommended that FEMA provide additional
information in the RIA on this topic and include non-quantified costs to acknowledge it
was conceivable that elevation and floodproofing could result in an increase in lives lost
if those efforts provide a false sense of safety to the public.
FEMA Response: FEMA is leveraging Executive Order 11988, as amended, and
the Revised Guidelines for the FFRMS rulemaking and the FFRMS implementation. The
Principles and Requirements for Federal Investments in Water Resources and the
accompanying Interagency Guidelines (PR&G) do not generally apply to this
rulemaking; rather, those requirements apply to actions associated with water
development projects.267 FEMA will apply the PR&G requirements to those specific
actions as applicable, namely those actions where FEMA is taking an action associated
with a water development project. Although the PR&G does not generally apply to this
rulemaking, FEMA notes that the 8-step process includes public notice requirements
detailed for steps 2 and 7, as further detailed in part 9.
Regarding the commenter’s comment about how FEMA did not provide a
quantification that would allow for a comparison among the FFRMS approaches, FEMA
showed the comparison in Tables ES-12 and ES-13 within the RIA. These tables present
the cost, transfer payments, and benefit estimates by FFRMS approach – where available

See “Principles and Requirements for Federal Investments in Water Resources at pg. 1, (Mar. 2013)
available at
https://obamawhitehouse.archives.gov/sites/default/files/final_principles_and_requirements_march_2013.p
df (last accessed Apr. 29, 2024) (“It is intended that these Principles and the supporting Requirements and
Guidelines be applied to a broad range of Federal investments that by purposes, either directly or indirectly,
affect water quality or water quantity”); see also and “Interagency Guidelines,” available at
https://obamawhitehouse.archives.gov/sites/default/files/docs/prg_interagency_guidelines_12_2014.pdf
(last accessed Apr. 29, 2024).
data allow – and also present estimates of costs, transfers, and benefits by grant program
for CISA, FEMA’s primary approach.
FEMA added more text to the qualitative analysis within the benefits section of
the RIA accompanying this final rule to further address the commenter’s concerns
regarding risk to human life and whether elevating or floodproofing properties under any
of the FFRMS approaches is safer than taking no action. FEMA included a description of
qualitative benefits, which included the potential for lives saved, savings in time and
money from a reduced recovery period after a flood, increased safety of individuals,
increased public safety, reduced personal and community impacts, and reduction in future
health issues related to flooding. FEMA does not believe that it would be appropriate to
refrain from taking this action based on the commenter’s suggestion that the rule could
instill a false sense of security. The commenter provided no evidence on this point, and
FEMA does not believe it would be appropriate to fund less resilient projects in an effort
to avoid making people feel secure in the event of a flood.
As explained in the NPRM, the CISA is FEMA’s preferred policy approach, as
FEMA believes it has the potential to be the best and most well-informed approach to
building resilience in an equitable manner and ensuring a reduction in disaster suffering.
CISA is designed to meet current and future estimates of flood risks unique to the
location and thus provide the best overall resilience, cost effectiveness, and equity.
With regard to the commenter’s recommendation that FEMA provide an estimate
of the population at risk by FFRMS approach, FEMA cannot correlate population risk by
floodplain expansion. FEMA could not use Geographical Information System (GIS)
data, as the database identifies whether a project was in the floodplain, but because it did
not categorize projects according to their location, FEMA was not able to distinguish
projects located in coastal areas from those located in non-coastal areas. Additionally,
the dataset does not break out multiple project worksites.

FEMA notes the agency’s current alternatives analysis process incorporates
consideration of a range of flood mitigation practices. FEMA considers the following
alternatives: a) no action; b) alternative locations; and c) alternative actions, including
alternative actions that use natural features or nature-based solutions. When practicable,
FEMA avoids actions within the floodplain. The flood minimization measures found in §
9.11 are reliable methods of providing resilience to structures. FFRMS flood resilience
measures consider both current and future flood risks to better protect Federal
investments. The elevation requirement in § 9.11(d)(3) applies to structures and also
allows floodproofing for non-residential structures. The FFRMS policy provides further
explanation for structures that must be located within the FFRMS floodplain must be
elevated or floodproofed to the FFRMS flood elevation. Additionally, the policy clarifies
facilities can use elevation or any other appropriate minimization measure to protect the
facility against the FFRMS flood elevation. Minimization can include measures such as
ensuring the impacted public knows their flood risk and has awareness of flood
evacuation procedures.
2. Discount Rates
Comment: Two commenters requested FEMA implement the revised 2 percent
discount rate from OMB Circular A-4 for this rulemaking to represent future benefits
more accurately. Another commenter requested clarification on the discount rates used in
the RIA. That commenter recommended FEMA state that the analysis was conducted
using the prescribed 7 percent discount rate and requested FEMA provide a sensitivity
analysis using a 3 percent discount rate and a 10 percent discount rate if appropriate.
FEMA Response: The new OMB Circular A-4 discount rate is effective March 1,
2024, for regulatory analyses received by OMB in support of proposed rules, interim
final rules, and direct final rules, and January 1, 2025, for regulatory analyses received by
OMB in support of other final rules. The FFRMS proposed rule was published on

October 2, 2023. Given this timing, FEMA is using the previously established discount
rate and is not applying the new OMB Circular A-4 discount rate to this final rule. For
the RIA, FEMA provided discounted values using both 3 percent (social rate of time
preference) and 7 percent (opportunity cost of capital) based on the version of OMB
Circular A-4 that was in place at the time of publication of the NPRM.
Comment: A commenter requested several clarifications on the discount rates that
were used within the RIA, including the discount rate used to generate the figures in
Appendix E (Benefits). The commenter questioned why both the 3 and 7 percent
discount rate for benefits were used within the analysis when the 50-year present value
benefit uses a single 7 percent discount rate. And they sought clarification on how the 7
percent discount rate was used for benefits.
FEMA Response: FEMA utilizes a 7 percent discount rate for benefits, while the
table(s) referenced uses both 3 and 7 percent discount rates. The benefits per structure
consist of a 50-year stream of benefits, discounted to the year that the structure is
constructed using a 7 percent discount rate. Since the RIA estimates 10 years’ worth of
projects, those benefits must be discounted again from the year of construction to the
present (i.e., to the beginning of Year 1) and annualized for comparison with 10 years’
worth of costs. FEMA conducted its discounting from the year of construction to the
beginning of Year 1 and conducted its annualization using both 3 and 7 percent discount
rates, per the version of OMB Circular A-4 that was in effect at the time of publication.268
FEMA has clarified this in this RIA.
3. Costs
Comment: A commenter requested clarifications and provided recommendations
regarding administrative costs in the RIA. Specifically, the commenter asked for

OMB Circular A-4, Regulatory Analysis, September 17, 2003, pages 33-34. Available at:
https://www.reginfo.gov/public/jsp/Utilities/a-4.pdf (last accessed Apr. 29, 2024).
clarification on the administrative costs in tables 85 and 86 of the RIA, which summarize
the low and high estimated impacts of the rule, stating these costs were shown as being
the same for all of the alternatives in those tables while the RIA stated a range for the
administrative costs. The commenter also requested clarification on table ES-12 and
other tables that omitted administrative costs from the undiscounted total dollar figures
while those costs were included in the undiscounted costs in tables 64-69 which show
total costs by FFRMS approach. The commenter requested FEMA reconcile the issue.
The commenter stated FEMA acknowledged there would be annual administrative costs
but only included those costs in the economic analysis for the first 10 years of the period
of the analysis. The commenter recommended FEMA either include annual
administrative costs as they apply after the initial 10-year period or explain why they
would no longer be included.
FEMA Response: The administrative costs are different in tables 85 and 86 in the
RIA provided with the NPRM. FEMA created a range for estimating the administrative
costs for two circumstances: 1) if all projects used the interagency Federal flood standard
support tool (low estimate, as represented in Table 85) and 2) if all projects used the Job
Aid (high estimate, as represented in Table 86) for the first 10 years under the CISA. In
reality, the administrative costs will likely fall somewhere between the low and high
estimates. These tables are still tables 85 and 86 in the RIA. Further, tables 64-69 show
the costs of the three different approaches (CISA, FVA, and 0.2PFA), which include the
administrative costs to show the total cost under each approach.
Table ES-12 is a summary table that shows the costs of each approach so that the
reader can see the various options next to each other. The administrative cost is separated
out because if FEMA added the administrative cost to each approach, it may be
misinterpreted as triple counting. To address the commenter’s concerns, FEMA included
footnotes in Table ES-12 and Table ES-13. FEMA also removed the term “total” from

the costs section within Table ES-12 and Table ES-13 as they are not the total cost as
they do not include the administrative cost. The reader should add each individual
approach to the FEMA administrative cost to obtain the total costs in Section 7.12. For
example, CISA + FEMA administrative = total CISA cost.
FEMA examined the number of projects that will be subject to the requirements
in the first 10 years after the rule’s publication. FEMA’s analysis focuses on the costs,
benefits, and transfer payments (i.e., impacts on FEMA grants) that will result over a 50year period from the application of the requirements of the final rule to those projects, for
a total period of analysis spanning 60 years. The costs and transfers occur in the first 10
years of the 60-year period because that is when the initial investment to elevate or
floodproof those projects takes place. This is an upfront cost that occurs when the project
is constructed. However, the benefits of the final rule are estimated over the 50-year
useful life of the affected structures.
Comment: A commenter recommended FEMA use a more general cost index
such as the Gross Domestic Product-Implicit Price Deflator (GDP-IPD) or an appropriate
construction cost index instead of the U.S. Department of Labor’s Bureau of Labor
Statistics Consumer Price Index (CPI) to establish a 2021 common dollar basis.
FEMA Response: FEMA used CPI in majority of the analysis within the RIA,
such as to adjust historical grant obligation amounts to constant dollars. However,
FEMA used an Engineering News Record (ENR) Construction Costs269 factor to adjust
the construction values to 2021 costs within the NPRM RIA. The ENR was used to
represent the change in costs from 2016 to 2021. The value selected was a national cost
average. This value is consistent with the approach used to calculate the initial
construction costs, which applied the national average square foot cost. The adjustment

Construction Cost Index History. Engineering News Record (ENR). Available at:
https://www.enr.com/economics/historical_indices/construction_cost_index_history (last accessed: Mar.
18, 2024).
factor from 2016 to 2021 applied was 1.17 or a 17% increase in construction costs over
the period analyzed. FEMA used the same ENR data for the final rule’s RIA but adjusted
it to 2022 costs. While other sources indicated a larger range of construction cost
increase, the ENR value was selected in the 2022 report as a lower-bound approach to the
benefits analysis.
Comment: A commenter stated that FEMA acknowledged the costs of operating
and maintaining elevation and floodproofing projects were not included in the RIA but
instead were zeroed out. The commenter stated that while additional costs for operating
and maintaining an elevated structure would be low, the costs for floodproofed structures
could be substantial if floodproofing entailed generator/pumping stations. The
commenter stated the omission was particularly glaring given the 50-year design life of
the project and recommended FEMA include some reasonable estimate of these costs
rather than zeroing them out, though the commenter did not provide any such estimates.
The commenter also stated the RIA was incomplete without information on the estimated
costs of improving the flood resilience of facilities; however, the commenter did not
provide a data source to use for estimating the cost of increased flood resilience for
facilities.
FEMA Response: FEMA appreciates the commenter’s concerns. FEMA
requested available data that would assist FEMA in estimating the impact of the proposed
increased flood resilience standards on specific types of facilities, including examples
showing the cost of similar resilience measures, case studies, or other relevant
information. FEMA did not receive any data. Instead, FEMA discusses the nonquantifiable costs within Qualitative Discussion of Additional Potential Costs section.
FEMA was able to quantify the number of facilities that would be impacted by the rule as
well as the incremental costs of applying the FFRMS to these facilities. FEMA
conducted the analysis on facilities based on the best available information. FEMA

acknowledges that there are lifecycle costs associated with floodproofing of structures,
but these costs are unique to the type of structure and floodproofing methods used, and
not generalizable across all potential projects nationwide. FEMA discusses these costs
qualitatively in Section 7.11.3 of the RIA.
FEMA included a qualitative summary of the impacts that could not be
quantified, such as increased resilience standards for facility projects, additional costs for
adding requirements to buildings with basements, diversion of projects out of the
floodplain, lifecycle maintenance costs for floodproofing and project delays and forgone
projects, within the executive summary and conclusion section.
FEMA discusses facilities and the challenges with estimating economic impacts
of the FFRMS. Because there are many methods for making facilities resilient, and due
to the wide variety of projects considered facilities, FEMA could not make quantitative
estimates of economic impacts for these projects that can be applied for all facility types
nationwide. .
Comment: A commenter requested FEMA further explain the omission of specific
quantifiable costs, such as the costs for projects that may be diverted out of the
floodplain, impacts to projects with existing basements, project delays, or foregone
projects, that would result from the rule. The commenter stated these costs vary in terms
of data and method calculation ability. In particular, the commenter questioned why
impacts to structures with basements were not quantified because data are available
about, for instance, the prevalence of basements geographically and depth-damage
functions for structures with basements, as well as information from the Census of
Construction. The commenter also questioned whether diversion out of the floodplain is
a cost of the rule because, presumably, a project would only be diverted if a project
owner determined that net benefits would be higher without the project in the floodplain.

FEMA Response: FEMA identified these as data limitations because the agency
does not generally track the information referenced by the commenter. For example,
FEMA does not track project applications where the applicant withdraws their
application for Federal funding due to floodplain considerations
In addition, FEMA appreciates the commenter providing data sources for
structures with basements and has considered this data. These data sources provide
national-level summary statistics and geographic information on structures with
basements. FEMA is unable to apply this data to FEMA’s project level data, since
FEMA databases do not include fields for structures with basements, and FEMA is
unable to correlate the Census of Construction data with its own project-level data.
Additionally, this data pertains to residential construction, and only a small number of
FEMA actions subject to the FFRMS are residential construction.
4. Benefits
Comment: A commenter requested clarification on the discrepancy on “Appendix
E: Benefits Net Present Value” heading on page 213, which would appear to indicate that
Tables 1-18 display the Net Present Values, but the column headings in these tables are
labeled “…Present Value Benefits….” The commenter stated that the various values
presented in said tables are elsewhere presented as Benefits rather than Net Benefit, as
seen in a comparison of Table 84 with Tables 17 and 18 of Appendix E.
FEMA Response: The tables referenced by the commenter show the Present
Value of the benefit streams expected from implementation of this rule. FEMA updated
the table headings and footnotes as appropriate.
Comment: A commenter requested clarification on how the results of the analysis
were presented in tables. Specifically, the commenter questioned the presentation of a
single estimate for benefits the FFRMS approaches in the conclusion, the lack of
monetization for benefits discussed qualitatively, how none of the FFRMS approaches

have a positive net benefit, and how there was no rationale for not selecting 0.2PFA as
the preferred approach, as the commenter calculates it is the FFRMS approach with the
greatest net benefit.
FEMA response: The benefits are not the same for all of the FFRMS approaches.
FEMA could not quantify every cost and benefit associated with this rule. However,
FEMA was able to quantify the number of structures and facilities that would be
impacted. FEMA quantified a portion of the benefits for the CISA for all PA Category E
projects that are subject to the FFRMS. Specifically, FEMA estimates the present value
benefits of one additional foot of freeboard for the 50-year useful life of PA Category E
projects undertaken during the 10-year period of analysis, with the assumption that there
will be a 59-inch SLR.
FEMA was only able to estimate quantitative benefits for PA Category E projects
affected using CISA. FEMA cannot compare quantitative benefits to the costs for IA or
HMA, since FEMA does not have a reliable data source to estimate the benefits for
projects covered by these programs; HMA data cannot be broken out by building types
and IA data is limited to residential-related projects, which are not included in the 2022
report. The table that the commenter created making such a comparison to demonstrate
that 0.2PFA is the FFRMS approach has the highest net benefits is not accurate. The
present value of benefits using CISA is not the same as the present value of benefits using
FVA or 0.2PFA, as the number of projects impacted by each approach varies. FEMA did
estimate the impact on PA projects for FVA, 0.2PFA and CISA in sections 7.14.2.1
through 7.14.2.6 within the RIA. However, these estimates cannot be applied to IA and
HMA projects for the reasons stated above. In addition, there are additional costs and
benefits that FEMA could not quantify for this analysis so FEMA discussed them in a
qualitative manner. For example, qualitative benefits include the potential for lives
saved, savings in time and money from a reduced recovery period after a flood, increased

safety of individuals, increased public safety, reduced personal and community impacts,
and reduction in future health issues related to flooding.
Accordingly, FEMA is unable to use the commenter’s table to select the
“alternative with the greatest net benefits” as the commenter stated, since the table is not
inclusive of all of the rule’s quantified and unquantified benefits.
Comment: A commenter sought clarification about how FEMA compared the
costs and benefits within the RIA. The commenter stated that it appeared as if the costs
pertaining to “14,427 PA, IA, and HMA structures” are being associated with, or charged
to, the benefits associated with “1,173 PA Category E projects.”
The commenter also expressed confusion over how FEMA used +5-ft freeboard
for costs and then used +1-ft freeboard for benefits. The commenter asserted that the
statement “FEMA does not have data to quantify the benefits of additional freeboard”
was confusing because depth-damage functions are available. They presumed that this
would account for CISA’s poor economic performance relative to the other approaches.
FEMA Response: FEMA’s quantitative benefit estimates are based on a 2022
report that analyzed the benefits of 1 foot of additional freeboard for various building
types. FEMA used this report to quantify the benefits of 1 foot of freeboard, as this was
the only data that was available. This allowed FEMA to monetize the benefits of an
additional foot of freeboard for non-residential PA projects (i.e., Category E projects).
FEMA was unable to use the benefits study to estimate the benefits for HMA and IA
projects, since HMA data cannot be broken out by building type, and IA data is limited to
residential projects. Accordingly, FEMA’s analysis acknowledges that when comparing
the total monetized costs and benefits of the rule, it is an imperfect comparison: the total
monetized costs are attributable to elevating or floodproofing PA, IA, and HMA
structures between 1 and 5 feet (depending on the FFRMS approach used and the location

of the project), while the total monetized benefits are attributable to elevating or
floodproofing PA projects one additional foot.
FEMA does not claim that the benefits to PA Category E projects are associated
with, or charged to, any of the other projects in this analysis. FEMA was able to estimate
costs for PA, HMA, and IA, but only able to quantify benefits for PA Category E.
FEMA expects benefits for all types of projects but does not have sufficient data for a
quantitative estimate.
FEMA could not apply depth-damage functions to these projects, since they are
only applicable to elevation or floodproofing at specified levels above the base flood
elevation for specified flood zones. FEMA’s project databases only identify whether a
project is in the 1 percent annual chance floodplain and do not show what flood zone a
project is located in. Because of this, FEMA cannot apply depth-damage functions to
individual projects to determine the benefits from elevation or floodproofing.
FEMA supplements the monetized benefits with a qualitative discussion of
additional benefits that FEMA could not monetize. Specifically, FEMA identified
qualitative benefits, including reductions in damage to properties and contents from
future floods, potential lives saved, public health and safety benefits, reduced recovery
time from floods, and increased community resilience to flooding.
Comment: A commenter requested clarification about how FEMA would
determine the necessary height to maximize net benefits for a given project under CISA.
Specifically, the commenter asked what assumptions FEMA would use (e.g., a 59-inch
SLR, an 8.5 RCP) to determine elevations that result from “using the best-available,
actionable hydrologic and hydraulic data and methods.”
FEMA Response: In the RIA, FEMA provided a summary of the estimated
benefits per building type for PA projects. The analysis included both mitigation types
(elevation and floodproofing) for 8-inch, 39-inch, and 59-inch SLR and both mitigation

types for 4.5 and 8.5 RCP. For FEMA’s primary estimate, FEMA used 59 inches of SLR
due to it being the closest SLR option to the vertical rise, in accordance with FEMA’s
CISA+5-ft assumption. CISA is the preferred approach for the FFRMS if the data are
available. Since 5 feet is equivalent to 60 inches (5 × 12 inches per foot), 59-inch SLR is
the closest SLR option that FEMA had available for this portion of the analysis.
However, in practice, FEMA’s FFRMS policy sets minimum elevation
requirements to account for possible changes in future flood hazards and therefore, under
the CISA, the elevation or floodproofing height would vary by location and criticality of
the project. As explained above, FEMA is relying on the FFRMS CISA State of the
Science Report to determine what CISA data is actionable and available and will use the
FFRMS Job Aid methodology to determine the CISA, FVA, and 0.2PFA for FFRMS
actions. The FFRMS CISA State of the Science Report270 discusses the SLR scenarios
and what factors to consider when selecting the appropriate SLR projection. The FFRMS
Job Aid recommends using the intermediate SLR scenarios for non-critical actions and
intermediate-high SLR scenarios for critical actions.271 As part of initial implementation,
FEMA intends to leverage the FFRMS Job Aid as explained above.
Comment: A commenter requested clarification regarding a footnote in the RIA’s
Executive Summary, in which FEMA explains the scope of its analysis is limited to
impacts from affected projects in the initial 10 years. The commenter questioned the
validity of the analysis under the assumption that the analysis relied on a sample of a

FFRMS CISA State of the Science Report, pg. 22, available at https://www.whitehouse.gov/wpcontent/uploads/2023/03/Federal-Flood-Risk-Management-Standard-Climate-Informed-Science-ApproachCISA-State-of-the-Science-Report.pdf?trk=public_post_comment-text (last accessed April 4, 2024). The
report recommends that agencies use the latest interagency Federal guidance for regionally-based SLR
projections. The underlying SLR science reported used for the report is based on the IPCC AR6 which
uses shared socioeconomic pathways (SSPs) rather than the older Representative Concentration Pathways
(RCPs). The five SLR scenarios described in Sweet et al. (2022), page 10, are based on global mean sea
level (GMSL) target values at 2100. These sea level scenarios are related to but distinct from the emissions
pathway scenarios in the IPCC AR6. The intermediate SLR scenario corresponds to a GMSL target
value in 2100 of 1m and the intermediate-high SLR corresponds to GMSL target value in 2100 of 1.5M.
271 FFRMS Job Aid, pg. 21.
larger set and recommended that FEMA coordinate with water resource agencies for
additional data on elevation and floodproofing.
FEMA Response: This commenter is misinterpreting the footnote. The footnote is
explaining why FEMA has limited the analysis to impacts from projects in only the initial
10 years of the rule’s implementation. It is not saying that the cost analysis is relying on a
sample (the first ten years of implementation) of a larger set (the period of time in which
the regulation would be in effect) as suggested.
Comment: One commenter wrote that the rule increased the efficiency and
financial benefits of Federal investments and that it would be irresponsible to continue
spending taxpayer dollars based on a backwards-looking assessment of flood risk. The
commenter agreed with FEMA’s assessment that the benefits of the rule justified the
rule’s costs. The commenter requested FEMA provide a more comprehensive and
accurate accounting of benefits in the RIA and quantify and monetize a wider range of
benefits, although the commenter did not provide any specific suggestions for doing so.
The commenter noted that many of the RIA’s unquantified benefits were of profound
importance to communities and families residing in the floodplain, including lives saved,
access to evacuation routes and essential services, better long-term health outcomes, and
reduced recovery times. Additionally, the commenter recommended FEMA place greater
emphasis on describing, quantifying, and monetizing the benefits of conserving
floodplains and wetlands and encouraging nature-based solutions. Finally, the
commenter suggested FEMA consider a more nuanced approach to the final rule’s
distributional effects by assessing how the rule’s benefits might be distributed across
populations.
FEMA Response: While monetizing the reduction in damages that is anticipated
from the rule would be a useful way to show the rule’s benefits, not all of the benefits can
be effectively monetized with available data. FEMA thoroughly researched methods to

quantify and monetize as many benefits as possible for the proposed rule but did not find
adequate sources to reliably quantify or monetize most benefits. FEMA continues to
research methods and data for quantifying benefits, but since publication of the proposed
rule, has not found data sources that would enable FEMA to further quantify the benefits
of incremental amounts of freeboard. In addition, FEMA did not receive any data or
methods from commenters that would allow FEMA to quantify what it found to be
unquantifiable impacts. Accordingly, consistent with direction by OMB Circular A-4 for
costs and benefits that are difficult to quantify, FEMA provided a literature review of
relevant benefits that could be realized from flood mitigation, an analysis of benefits
quantified for the rule, a qualitative description of additional benefits that could be
realized from the rule, and a discussion of why FEMA was unable to quantify such
benefits.
Regarding the commenter’s recommendation to assess how the rule’s benefits
might be distributed across populations, FEMA agrees that ensuring equal access to
FEMA funding for PA, IA, and HMA projects is important. The projects affected by this
rule will be a subset of – only new construction or substantial improvement – projects
currently funded through these programs. Accordingly, current FEMA initiatives address
these concerns. For example, FEMA has an agency-wide initiative focused on reducing
barriers and increasing opportunities so all people, including those from vulnerable and
underserved communities, can get help when they need it. Additionally, FEMA reviews
all proposed FEMA-funded actions for potential disproportionate and adverse human
health and environmental effects on communities with environmental justice concerns
using a standardized environmental justice compliance review process.
5. Benefit Cost Analysis (BCA)
Comment: A commenter sought clarification of the term “cost-effective” within
the RIA.

FEMA Response: FEMA added the definition of cost-effectiveness used within
the RIA as “any alternative or measure whose discounted benefits are greater than its
discounted costs” within the RIA to clarify this. FEMA acknowledges that it is possible
define cost-effectiveness as ensuring the most efficient use of a given amount of
resources, but notes that the definition in the RIA is consistent with BCA principles
applicable to some FEMA grant programs.
Comment: A commenter stated that the gross omissions in the “BCA” render it
useless, if not misleading as a BCA. The commenter referenced guidelines at both 40
CFR 1502.22 and Chapter III of Principles, Requirements and Guidelines for Water and
Land Related Resources Implementation Studies (PR&G). The commenter did not
provide data that would allow FEMA to fill the stated “omissions.”
FEMA Response: The commenter appears to be using the term “BCA” to refer
generally to FEMA’s regulatory impact analysis pursuant to EO 12866 and comparing
the analysis to NEPA guidelines and PR&G. To the extent the commenter is referring
generally to FEMA’s regulatory impact analysis, FEMA recognizes that it has limitations
based on available data, and provided qualitative analysis where it could not complete a
quantitative analysis. OMB Circular A-4 – the operating guidance for regulatory analysis
conducted pursuant to EO 12866 – acknowledges that it may not be possible to express in
monetary units all of the important benefits and costs.272 Circular A-4 directs that if
monetization is not possible, agencies should explain why and present all available
quantitative information, and if agencies are not able to quantify the effects they should
also present a description – along with strengths and limitations – of the unquantified
effects.

OMB Circular A-4, Regulatory Analysis, September 17, 2003, pages 33-34. Available at:
https://www.reginfo.gov/public/jsp/Utilities/a-4.pdf (last accessed Apr. 29, 2024).
FEMA adhered to this guidance. Although FEMA could not estimate the cost of
the rule for facilities due to the highly project-specific nature of facilities projects, and the
numerous options for making them resilient, FEMA was able to quantify the number of
impacted facilities and explained why monetization was not possible. FEMA was unable
to estimate the number of projects that would use each FFRMS approach per FEMA’s
policy, and so FEMA conducted an analysis assuming each FFRMS approach was the
only one to demonstrate the range of possible costs. For benefits, FEMA acknowledged
that the quantified estimates – where data allowed for quantification – represent only a
portion of the increased risk reduction that will be achieved through this rule and
discussed qualitatively other important benefits of the rule. When considering the total
costs of the rule, FEMA noted that its choice of CISA as its preferred approach will use
the best available and actionable scientific data to tailor future flooding risk to each
project, ensuring that projects are built only to the elevation necessary and thus
maximizing net benefits.
Comment: A commenter stated that the RIA did not comply with Circular A-4’s
requirements to present the net benefits for the different alternatives and provide a
threshold or incremental analysis supporting the selection of FEMA’s preferred
alternative.
FEMA Response: As discussed above, Circular A-4 acknowledges that it may not
be possible to express in monetary units all of the important benefits and costs. It notes
that when important benefits and costs cannot be expressed in monetary terms, the
calculation of net benefits is less useful, and “can even be misleading,” because in such
cases, the calculation of net benefits do not provide a full evaluation of all of the relevant
benefits and costs. Instead, Circular A-4 advises that in such circumstances agencies

should exercise “professional judgment” in determining how important the nonquantified benefits and costs may be in the context of the overall analysis.273
As the commenter points out, Circular A-4 acknowledges that agencies “should
also consider conducting a threshold analysis to understand the potential significance of
these factors to the overall analysis.” FEMA considered including a threshold analysis,
but such an analysis still would not have provided insight into the difference between the
benefits of CISA, FVA, and 0.2PFA as data available to estimate quantitative benefits
was limited to only one foot of freeboard for PA structure projects. The difference in
unquantified impacts between the FFRMS approaches would result in comparison of
thresholds comprising different sets of impacts. Accordingly, FEMA used its
professional judgment to determine that CISA is the best policy decision because it is
meant to ensure that amount of additional flood protection for each project is determined
by the best available, actionable hydrologic and hydraulic data and methods that integrate
current and future changes in flooding based on climate science.
Comment: A commenter stated that the FFRMS RIA does not comply with the
requirements for a Cost-Effectiveness Analysis (CEA) as detailed in OMB Circular A-4.
FEMA Response: FEMA recognizes it has limitations in the available data and
agrees the RIA was not intended to be a CEA, as defined by OMB Circular A-4. FEMA
notes that OMB Circular A-4 provides agencies with a choice of analytical approaches for
regulatory analysis and does not require agencies to perform a CEA.274 As mentioned
above, FEMA provided qualitative analysis where it could not complete a quantitative
analysis, as allowable under OMB Circular A-4. FEMA was unable to conduct a CEA
because FEMA only had data available to estimate quantitative benefits of only 1 foot of
freeboard for structures under the PA program. FEMA did not have data available to
OMB Circular A-4, Regulatory Analysis, September 17, 2003, page 10. Available at:
https://www.reginfo.gov/public/jsp/Utilities/a-4.pdf (last accessed Apr. 29, 2024).
274 OMB Circular A-4, Regulatory Analysis, September 17, 2003, pages 9-10. Available at:
https://www.reginfo.gov/public/jsp/Utilities/a-4.pdf (last accessed Apr. 29, 2024).
conduct the same quantitative analysis for projects under the IA and HMA grant programs
or for additional levels of freeboard as applicable under each of the FFRMS approaches.
Therefore, FEMA completed a Benefit Cost Analysis as it is more appropriate for this
rulemaking given the wide range of unquantifiable benefits expected to accrue from each
alternative.
6. Other RIA Comments
Comment: FEMA requested public comment on any available data, examples
showing the costs of similar resilience measures, case studies, or other relevant
information that would assist FEMA in estimating the magnitude of the impact of the
FFRMS on specific types of facilities. A commenter recommended contacting the “four
water resource agencies” identified as “USACE, BuRec, DOE-TVA, and NRCS,” to
what information in their current databases or relevant studies might be useful.
FEMA Response: FEMA appreciates this suggestion. FEMA has engaged with
the U.S. Army Corps of Engineers (USACE), the Bureau of Reclamation (BuRec), the
Tennessee Valley Authority (TVA),275 and the National Resources Conservation Service
(NRCS), and none of the agencies had relevant data or studies in relation to facilities that
FEMA could use for this economic analysis. While such agencies – like FEMA – have
access to some information on making facilities more resilient to flooding,276 it is still not
possible to use this information to generate estimates of the likely marginal cost of
FFRMS implementation across FEMA-funded facility projects. The variety of projects,

FEMA assumed the reference to DOE-TVA is to the Tennessee Valley Authority although FEMA notes
that TVA is not a component of the Department of Energy.
276 For example, USACE has a suite of resources on its website related to its implementation of CISA in its
Civil Works Programs which detail how project delivery teams must consider the effects of sea level
change when formulating, selecting, and evaluating project alternatives, and how to characterize potential
project vulnerabilities to the effects of climate change on inland hydroclimatology. See
https://www.iwr.usace.army.mil/Missions/Flood-Risk-Management/Flood-Risk-ManagementProgram/About-the-Program/Policy-and-Guidance/Federal-Flood-Risk-Management-Standard/. However,
this information did not include relevant data that FEMA could use in its economic analysis related to the
costs of implementation for facilities.
and unique characteristics of construction and repair of these projects does not allow
FEMA to make estimates that can be broadly applied.
Comment: A commenter stated that the RIA is subject to the Principles and
Requirements for Federal Investments in Water Resources March 2013. The commenter
stated the RIA was inconsistent with the requirements of that document and supporting
PR&G. Specifically, the commenter stated the RIA did not make any representation as to
any alternatives that maximize public benefits relative to costs and failed to provide any
representation of net public benefits. The commenter also stated the preferred alternative
was not clearly defined and the commenter recommended FEMA disclose assumptions
made and address uncertainties associated with the composition of the preferred
alternatives consistent with the PR&G.
FEMA Response: As explained above, the PR&G does not generally apply to this
rulemaking; rather, the PR&G applies to actions associated with water development
projects. FEMA will apply the PR&G only to those specific actions under part 9 that are
actions associated with a water development project.
Comment: One commenter noted that the baseline against which FEMA assessed
the costs and benefits of this rule produced a “subjective assessment of the proposed
rule’s costs and benefits.” Specifically, the commenter stated that because FEMA said it
was unable to conduct an analysis of the rule’s effects separate from the effects of
FEMA’s recently implemented partial interim policies for Public Assistance (PA) and
Hazard Mitigation Assistance (HMA) that the pre-guidance baseline it used was a “lessrepresentative” analysis of the rule’s costs and benefits.
FEMA Response: FEMA conducted its analysis under the pre-guidance baseline
that considered the holistic effects of the partial interim policies for PA and HMA, as
well as the proposed rule. At the time the Notice of Proposed Rulemaking (NPRM) RIA
was conducted, these partial implementation policies had been in place for less than 2

years, which is an insufficient period to provide adequate data for analysis. These
policies were issued as temporary, partial implementation of the FFRMS until FEMA
could implement it through this rulemaking. FEMA conducted the Regulatory Impact
Analysis against a pre-statutory baseline to capture the economic impacts of the FFRMS
and more accurately measure the impacts of the rule against the world without the interim
PA and HMA policies. Therefore, FEMA was unable to complete an in-depth analysis of
the impact of these interim policies. Accordingly, FEMA used a pre-guidance baseline
for this final rule to measure the impacts of the rule against the world without the interim
PA and HMA policies.
Comment: A commenter provided several clarification edits.
FEMA Response: FEMA thanks the commenter for these suggestions. FEMA has
added these clarifications to the RIA and updated the language as suggested.
Comment: A commenter suggested rounding dollar figures to an appropriate level
of significance.
FEMA Response: FEMA appreciates this suggestion. FEMA adjusted the figures
in the analysis, where feasible and appropriate.
Comment: A commenter stated that for the CISA floodplain analysis, the midpoint of +1’ and +10’ is +5.5’ would round to 6’. They recommend against
characterizing the +5-ft CISA level as the mid-point.
FEMA Response: FEMA updated the RIA to clarify this was rounded down to 5ft.
Comment: A commenter recommended deleting the “minimum, moderate, and
maximum” for the SLR qualifiers throughout the document as the reader could come to a
misunderstanding that the totality of the range for SLR rise is encompassed by the 8” and
59” figures.

FEMA Response: FEMA removed the terms minimum, moderate and maximum
from 8-inch, 36-inch, and 59-inch, respectively as suggested.
Comment: A commenter stated that a footnote in the Executive Summary of the
RIA could be misleading, as it stated that “the United States has suffered more than $1.7
trillion in flood-related damages over an approximately 40-year period.” The commenter
noted that FEMA included tropical cyclones as a flood-related damage and stated that
tropical cyclones entailed substantial wind making the $1.7 trillion figure potentially
misleading.
FEMA Response: FEMA clarified within the footnote that severe storms can
include wind-related damages, but the data does not separate these damages out.
Comment: A commenter sought clarification on the use of “Federal Investments,”
stating that FEMA’s use of the term might encompass actions taken by other agencies
such as water resource agencies.
FEMA Response: FEMA’s rule only applies to projects it funds under its grant
programs. All other Federal agencies will implement the FFRMS using their own
processes and procedures. FEMA made clarifications in the RIA to clarify use of the
term “federal investments.”
Comment: A commenter suggested editorial changes to refer to “9.11” as 44 CFR
§9.11 as it was unclear when it is standing alone.
FEMA Response: FEMA appreciates this clarification. FEMA made this change
to 44 CFR §9.11.
Comment: A commenter suggested editorial changes to Table ES-14.
FEMA Response: FEMA appreciates this suggestion. FEMA edited the RIA to
reflect the commenter’s requested changes.
Comment: A commenter corrected miscited footnotes.

FEMA Response: FEMA appreciates this suggestion. FEMA updated the
footnotes as suggested by the commenter.
Comment: A commenter suggested removing page reference within a footnote as
the footnote did not address avoided loss as stated in the RIA.
FEMA Response: FEMA typically includes a page number so that the readers can
easily find the referenced source. FEMA updated the page citation to properly reflect the
location in the document.
Comment: A commenter suggested reconciliation of different statements in the
text in the bottom paragraph on page 17, Table ES-1, and the text in the second paragraph
in the RIA regarding how FEMA analyzed the impact of each FFRMS expansion option
as they are not consistent with one another.
FEMA Response: FEMA appreciates this suggestion. FEMA edited the document
for consistency as suggested.
Comment: A commenter recommended re-titling Table ES-1 within the RIA since
it was not consistent with its introductory text in the last paragraph on page 17.
FEMA Response: FEMA appreciates this suggestion. FEMA clarified the title to
table ES-1.
Comment: A commenter recommended editorial changes to Table ES-3 within the
RIA so that the rows were properly aligned.
FEMA Response: FEMA appreciates this suggestion. FEMA corrected this for
the final rule.
Comment: A commenter recommended making editorial changes to the RIA and
to use quotations around statements that were verbatim from an outside source.
FEMA Response: FEMA appreciates this suggestion. FEMA has gone through
the document and made the recommended changes.

Comment: A commenter recommended FEMA edit a statement of present values,
as present values are discounted by definition.
FEMA Response: FEMA appreciates this suggestion. FEMA removed the term
undiscounted from the benefit statements for clarity purposes.
Comment: A commenter recommended FEMA edit the RIA to avoid confusion
between discount rates and annual increases, providing an example within the Executive
Summary of the RIA.
FEMA Response: FEMA clarified the wording to prevent confusion on the
discount rates with annual increases.
Comment: A commenter pointed out inconsistency with the annualized CISA
costs within Table ES-13 and ES-14.
FEMA Response: FEMA updated all of the costs for the final rule and reconciled
this discrepancy.
Comment: A commenter requested FEMA delete an introductory sentence in RIA
section 6.14 that states flooding is “by far the most common natural disaster type in the
United States.” 277 The commenter noted that NOAA distinguishes flooding as a category
separate from tropical cyclones and storms which were both identified as having greater
frequencies than flooding. The commenter also opined that storm damages are more
properly associated with wind damage than with flooding.
FEMA Response: FEMA appreciates the commenter’s concerns and deleted the
sentence. Categorizing and calculating damage for different disaster types can be quite
complex; however, the methodology set forth in the benefits section of the RIA is not
dependent on resolution of these complexities. Further, it is not necessary to prove that
flooding is the most common natural disaster type to state, as FEMA has in section 6.14
of the RIA, that there are benefits to mitigating against flooding.

FEMA-2023-0026-0018

Comment: A commenter requested rationale on why FEMA selected a 10-year
period for the RIA. The commenter also recommended FEMA change language in the
RIA to state that the agency limited the dollar-valuation to the projects impacted in the
first 10 years following the rule’s publication or expand the analysis to reflect economic
concerns over the expected life of the regulation. The commenter stated additional
discussion was needed regarding future effects and provided a number of questions
around those effects including whether development within the floodplain would be
progressively more likely to be diverted outside the floodplain over time and whether the
costs of elevating or floodproofing would be expected to decline over time in real terms
as contractors and architects adapt to the new requirements. The commenter asked
whether it would be most appropriate to simply state that the first 10 years of the analysis
was viewed as being a sample for the entire period or if the use of the maximum 8.5 RCP
and the 59-inch SLR indicated a 50-year life for the regulation was suspected and that a
shorter period of analysis was in order.
FEMA Response: FEMA appreciates the commenter’s concerns regarding the
analysis period. FEMA has clarified language throughout the RIA to further address the
commenter’s concerns. FEMA conducted the regulatory analysis using its standard 10
years of historical data and, based on this data, estimated the number of affected projects
for the first 10 years after implementation of the rule. Circular A-4 directs that the
timeframe for an agency’s analysis “should cover a period long enough to encompass all
the important benefits and costs likely to result from the rule.” FEMA believes
estimating the number of affected projects over the initial 10 years and benefits over their
50-year useful life captures all the important benefits (protection from flooding) and costs
(construction costs) likely to result from the rule because FEMA does not expect a
change in the types of costs or benefits after this time period. FEMA acknowledges that

flooding is widely expected to increase in frequency and severity in the future,278 so
estimating the number of affected projects and their associated benefits farther into the
future would become increasingly inaccurate as conditions change and the expected
frequency and severity of disasters increases. However, due to increased flooding
frequency and severity, FEMA believes that the benefits of increasing the protection of
structures in the future is expected to continue to justify the cost of doing so beyond the
10-year timeframe that FEMA used for this analysis.
Regarding other future effects such as diversion of projects outside of the
floodplain, FEMA notes that this is discussed within the RIA in the Qualitative
Discussion of Additional Potential Costs section. The effect of the rule could be to divert
some projects out of the floodplain. However, it is not possible to state with a reasonable
degree of certainty how many projects this will affect, or the costs or benefits associated
with diverting these projects out of the floodplain, as FEMA does not currently track this
information. The costs and benefits, and the decision to build inside or outside of the
floodplain, will be dependent on the specific location or characteristics of a property or
project.
Comment: A commenter stated that they could not find the “2022 Benefits
Analysis of Increased Freeboard for Public and Nonresidential Buildings in Riverine and
Coastal Floodplains” file at regulations.gov under docket ID FEMA-2023-0026.
FEMA Response: FEMA verified that all of the supporting documents were listed
on the site during the comment period, including the report referenced.279
Comment: A commenter pointed out confusion with the footnote “25 FEMA’s
project level data for IA, PA, and HMA delineate whether projects are in the Special

The Third National Climate Assessment. https://nca2014.globalchange.gov, (last accessed Apr. 29,
2024).
279 FEMA, A Benefits Analysis of Increased Freeboard for Public and Nonresidential Buildings in Riverine
and Coastal Floodplains, July 2002,available at: https://www.regulations.gov/document/FEMA-2023-00260003.
Flood Hazard Area (1 percent annual chance floodplain) but do not show whether they
are in the 0.2 percent chance floodplain” because FIRMs characteristically identify both
the 1 percent annual chance floodplain and the 0.2 percent annual chance floodplain.
FEMA Response: FEMA agrees that the 0.2 percent annual chance floodplain, in
locations where that floodplain is mapped, is available on FIRMs. However, the data
availability issue noted in the footnote is that FEMA’s project databases (e.g., IA, PA,
HMA) do not include FIRM data, so FEMA is not able to accurately determine whether a
project is in the 0.2 percent chance floodplain. FEMA’s project level data only indicate
whether a project is located in the SFHA in most cases. Project databases do not contain
accurate geolocation data, and addresses on file are for the recipient’s address, which
may not be the project location, so FEMA was unable to locate projects on a FIRM, or
determine which flood zone a project was located in.
Comment: A commenter stated that FEMA’s preferred policy approach is not
clearly defined, as it consists of an unidentified mixture of CISA, FVA, and 0.2PFA,
which requires the reader to speculate and make assumptions about the composition in
order to draw conclusions. The commenter suggested FEMA discuss the uncertainty
associated with the composition of the FFRMS approaches that comprise FEMA’s
preferred policy approach.
FEMA Response: FEMA selected CISA as the preferred policy approach, since
FEMA believes it has the potential to be the best and most well-informed approach to
building resilience in an equitable manner and ensuring a reduction in disaster suffering.
CISA is designed to meet current and future estimates of flood risks unique to the
location and thus provide the best overall resilience, cost effectiveness, and equity.
FEMA added clarification on what the primary approach is earlier in the RIA.
FEMA acknowledges that its policy – which requires use of FVA and 0.2PFA
when CISA data are not available and actionable – will result in an unknown mixture of

projects using CISA, FVA, and 0.2PFA. OMB Circular A-4 suggests using central
estimates “where such information exists” but authorizes the use of upper and lower
bounds where it does not, together with any available information that might help in
qualitatively determining which scenario is most likely to occur. FEMA conducted its
analysis to consist of a range of potential costs, benefits, and transfers. FEMA analyzed
the impact of the FVA, 0.2PFA, and CISA for each of the programs, PA, IA, and HMA,
as if each approach were the only FFRMS expansion option. FEMA discussed that
because the composition of applied FFRMS approaches will continue to change with the
addition of CISA data over time, there is significant uncertainty in any such estimates.
Accordingly, FEMA estimated the costs of the requirements for each of the approaches
separately to create upper and lower bounds estimates of the possible outcomes. In
addition, as discussed above, FEMA presents CISA as the primary estimate for the
impacts of the rule because it is FEMA’s preferred FFRMS approach and therefore, over
time, it will become the most widely used FFRMS approach.
Comment: A commenter disagreed with FEMA’s statement about how “RCP 4.5
and 8.5 are widely accepted scenarios that represent medium and low efforts to curb
emissions, respectively.” They suggested better explaining the definitions of RCP 4.5 and
8.5 based on the EPA’s language about RCPs.
FEMA Response: FEMA appreciates this suggestion. FEMA updated the use of
RCP 4.5 and 8.5 and the definitions for the Final Rule RIA.
Comment: A commenter suggested explaining the terms “low estimate” and “high
estimate” earlier in the RIA. They also suggested that instead of using a range, FEMA
should present a best estimate for these values and discuss the uncertainty associated with
such values in the Risk and Uncertainty section of the document. They also requested a
sensitivity analysis showing how the decision might be affected if the values used proved
to be unduly high or low. The commenter suggested that because of the number of

variables contributing to the ranges (e.g., discount rate, high and low), the presentation of
information would be clearer if single, best-estimate, rounded values were used in the
analysis.
FEMA Response: OMB Circular A-4 suggests using central estimates “where
such information exists” but authorizes the use of upper and lower bounds where it does
not. In the instances where FEMA uses a range, it is because FEMA does not have
adequate justification for a single best estimate. FEMA conducted its analysis to consist
of a range of potential costs, benefits, and transfers. For example, as discussed above,
FEMA analyzed the impact of the FVA, 0.2PFA, and CISA for each of the programs, PA,
IA, and HMA, as if each approach were the only FFRMS expansion option because it is
unknown exactly how many projects will be subject to the FVA, 0.2PFA, or CISA
requirements under the final rule, and how use of CISA will change as more data become
available over time. Because FEMA analyzed each approach separately, it is unable to
provide a primary estimate, and instead had to rely on a range of possible impacts. In
addition, FEMA does not have data to estimate whether certain non-residential new
construction projects will elect to floodproof or elevate and therefore also used a range
for the cost of meeting the rule’s increased construction standards.
FEMA appreciates that the presentation of the range of impacts may not be as
clear as a single point estimate. FEMA presents this information in tables, to help more
clearly convey the information, and has also reviewed the language and streamlined for
increased clarity.
Comment: A commenter provided editorial suggestions to the statement: “CISA is
the only approach that ensures projects are designed to meet current and future flood risks
unique to the location and thus provides the best overall resilience, cost effectiveness, and
equity.” The commenter suggested the claim that CISA makes such an assurance is an
overstatement of the risk reduction from the CISA.

FEMA Response: FEMA appreciates this suggestion. FEMA accepted this
change in part: “CISA is designed to meet current and future estimates of flood risks
unique to the location and thus provide the best overall resilience, cost effectiveness, and
equity.”
Comment: A commenter provided suggested edits to FEMA’s statement regarding
whether the action was a significant regulatory action under Executive Order 12866, as
amended by Executive Order 14094.
FEMA Response: This is standard language that FEMA uses in RIAs. FEMA
provided footnotes to this statement clarifying the relevant sections of Executive Order
12866.
Comment: A commenter recommended presenting the CISA-only analysis as an
alternative or explaining why it was found to be unreasonable and including it in the
section of the document on alternatives considered but not selected. If FEMA found a
CISA-alone approach to be unreasonable, the commenter recommended changing all
blanket statements in the document that describe CISA as the best approach for achieving
overall resilience, cost effectiveness, and equity.
FEMA Response: The CISA is one of three approaches available under the
FFRMS, and FEMA’s preferred approach. However, because the CISA data is not
available nationwide, a CISA-only approach is not currently feasible, and other FFRMS
approaches are needed for areas where the CISA is not available. FEMA’s
implementation of the FFRMS allows for the use of the most appropriate approach
depending on the data available for a given project. Although FEMA estimated the
impacts of the CISA for affected programs as if it were the only FFRMS expansion
option, just as it did for the FVA and 0.2PFA, FEMA was unable to use actual CISA
estimates, as they are not yet available nation-wide and instead used an estimate. As the
CISA data becomes more available, FEMA expects it to be the more widely-adopted.

FEMA made clarifying edits to statements describing the CISA as the preferred
approach.
Comment: A commenter encouraged FEMA to consider implications of FEMA’s
FFRMS policy on benefit-cost analyses for flood mitigation assistance grants.
FEMA Response: FEMA appreciates the commenter’s concerns. FEMA’s
FFRMS policy will generally not change BCA requirements for FEMA programs.
Certain Hazard Mitigation Assistance programs and Public Assistance projects are
subject to a Benefit-Cost Analysis prior to approval, where the mitigation action must be
determined to be cost-beneficial using FEMA’s BCA tool. For FEMA’s FMA program,
the costs of additional elevation above the base flood elevation will be considered as part
of the BCA. Currently, the BCA tool includes pre-calculated benefits that streamline the
cost-effectiveness determination for structure elevation projects are limited to structures
where some part of the structure is within the 1 percent annual chance floodplain. For an
elevation project where the entire structure footprint is outside the 1 percent annual
chance floodplain, FEMA will also require a BCA to show cost-effectiveness. For
FEMA’s PA program, cost-effectiveness requirements apply only to Hazard Mitigation
measures on projects to restore disaster damaged structures and facilities. FEMA notes
that any increased costs are generally eligible for funding under FEMA’s assistance
programs subject to cost share requirements. FEMA acknowledges that FFRMS
requirements may impact individual BCA results, with the potential to cause some
projects to pass that otherwise wouldn’t, and vice-versa, but is not able to predict this for
future individual projects because project-level analysis is not generalizable nationwide.
For structures, FEMA estimates the marginal cost of implementing FFRMS to be
relatively low, ranging from 0.32 percent (1 foot of elevation for new construction) to
8.07 percent (4 feet of dry floodproofing for a building retrofit) of total project cost,
depending on the elevation required and the type of project. Given available evidence

showing relatively small costs and even positive increases in Benefit-Cost Ratio in
connection with additional elevation for studied residential buildings, FEMA does not
expect FFRMS requirements to adversely affect the BCR for a large volume of
projects.280 281
Comment: A commenter questioned the baseline data used for the floodplain
expansion analysis in Appendix A. The commenter stated that FEMA should have
compared the 1’ freeboard measured to the “Effective/Preliminary 1 percent annual
chance floodplain” instead of the “replotted” 1 percent annual chance floodplain.
FEMA Response: The goal of the floodplain expansion analysis performed by
FEMA is to estimate the number of additional projects that would be affected by a
requirement for a higher vertical elevation, and thus horizontal expansion, of the
floodplain. When FEMA calculated the FFRMS floodplains for different freeboard
values, FEMA used the latest high-accuracy ground elevation data. The original 1
percent annual chance floodplain boundaries were likely calculated using older ground
elevation data. For consistency, FEMA compared the FFRMS freeboard-based
floodplains to a 1 percent annual chance floodplain redrawn using the new ground
elevation data. This approach provides the most consistent comparison of the difference
in area between the 1 percent annual chance floodplain and the FFRMS floodplain (i.e.,
specific levels of freeboard added to the 1 percent annual chance flood elevations). This
approach does not account for differences between the redrawn 1 percent annual chance
floodplain boundaries and the original 1 percent annual chance floodplain boundaries.

National Institute of Building Sciences. Multi-Hazard Mitigation Council. “Natural Hazard Mitigation
Saves.” 2019. https://www.nibs.org/files/pdfs/NIBS_MMC_MitigationSaves_2019.pdf (last accessed Apr.
29, 2024). See, for example, Table 5: BCRs for various heights above BFE for new coastal V-zone
buildings and Table 2-2: Summary BCR results for sampled counties susceptible to riverine flooding.
281

A Benefits Analysis of Increased Freeboard for Public and Nonresidential Buildings in Riverine and
Coastal Floodplains. FEMA. Draft, July 2022, pg. 16, available at:
https://www.regulations.gov/document/FEMA-2023-0026-0003.

Since the goal is to produce a statistical estimate of the impact of freeboard, FEMA
assumed the differences between the original 1 percent annual chance boundaries and the
redrawn 1 percent annual chance boundaries would be largely random and not essential
to the goal of the estimate.
Comment: A commenter assessed that FEMA’s statements that a study upon
which it relied considered various levels of SLR “by 2100” is problematic, as the study
does not extend as far as the year 2100, and it actually only extends some 60 years into
the future. The commenter sought clarification.
FEMA Response: FEMA would like to distinguish between the coastal and
riverine flood studies used within the 2022 Report.282 The riverine analysis considered
two climate change scenarios to evaluate the amount of increase or decrease in riverine
flood elevations over the next 50 years. These evaluated two widely accepted scenarios
of the Representative Concentration Pathways (RCP) 4.5 and 8.5, which represent
medium and low efforts to curb emissions.
The coastal study within the 2022 Report considered 12 different locations along
a hypothetical coastal transect to evaluate the impact of various wave conditions in Zone
A (areas with wave heights less than 1.5 feet) subject to coastal storm surge. The sea
level rise conditions replicated a 2016 evaluation considered 8-inch, 20-inch, 39-inch,
and 59-inch sea level rise by 2100.283 The sea level rise assumptions are explained in the
2022 report. Specifically, when evaluating the increases in flood depths, the rise
scenarios were considered in 10-year increments from 2022 to 2100, but the evaluation of
the benefits is limited to the 50-year useful life of a project (i.e., from 2022-2072). The
assumed increase in flood depths is shown in Table 1 of the report in 10-year increments.

A Benefits Analysis of Increased Freeboard for Public and Nonresidential Buildings in Riverine and
Coastal Floodplains. FEMA. Draft, July 2022, pg. 16, available at:
https://www.regulations.gov/document/FEMA-2023-0026-0003.
283 FEMA, 2016 Evaluation of the Benefits of Freeboard for Public and Nonresidential Buildings in Coastal
Areas. Available at: https://www.regulations.gov/document/FEMA-2015-0006-0379.
Consistent with FEMA’s BCA guidance,284 FEMA selected the 50-year project
useful life which is the timeframe evaluated to determine the cost-effectiveness for a
public building and is consistent with the assumption in the FEMA BCA Toolkit.
FEMA’s analysis focuses on the costs, benefits, and transfer payments (i.e., impacts on
FEMA grants), that will result over a 50-year period from the application of the
requirements of the final rule to those projects, for a total period of analysis spanning 60
years. For example, if a structure is built in Year 10, the analysis covers 50 years of
costs, benefits, and transfers for that structure starting in Year 10. However, if a structure
is built in Year 11, that is outside of the first 10 years, and so the analysis does not
consider the costs, benefits, or transfers of the FFRMS requirements on that structure.285
III. Discussion of Changes
This rule makes changes to the NPRM in response to comments received, as well
as minor technical edits. Specifically, in § 9.7(c)(3), FEMA made a clarifying edit by
adding the words “information from” before the colon, such that the sentence reads “In
obtaining the best available information, FEMA may consider other FEMA information
as well as other available information, such as information from:”
FEMA also edited § 9.7(c)(3)(iv) to include the National Park Service as an
agency within the Department of the Interior where FEMA obtains information. FEMA
also edited § 9.7(c)(3)(ix) to include Indian Tribal governments; as revised, this

BCA Reference Guide, Appendix D. Project Useful Life Summary (June 2009). Available at:
https://www.fema.gov/sites/default/files/2020-04/fema_bca_reference-guide.pdf (last accessed May 15,
2024).
285 If FEMA limited the analysis to only 10 years of impacts, it would consider all of the costs and transfers
but only a small portion of the benefits from additional protection from flood events because the life of the
structure is more than 10 years. After year 10, the final rule would continue to impact FEMA projects
funding new construction, substantial improvements or repairs to fix substantial damage. To estimate the
future number of impacted structures, FEMA used the average number of projects that would have been
affected by this rule had it been in place over the past 10-year period, assuming the next 10 years would
look largely like the past 10 years. FEMA chose to limit the analysis to 10 years of affected structures
because estimating the number of affected projects and their associated benefits further into the future –
that is, further from historical disaster data would become less accurate as conditions change and the
expected frequency and severity of major disasters increases. Accordingly, FEMA’s analysis focuses on
the 50-year impacts of the rule on projects that take place in the initial 10-year period, for a total period of
analysis spanning 60 years.
paragraph now reads, “Agencies of State, Regional, and Indian Tribal governments.”
While FEMA always considered Tribal information, the edits further confirm the
agency’s commitment to doing so. The changes made to § 9.7(c)(3) clarify that FEMA
considers certain relevant and appropriate data in making the floodplain determination
under part.
FEMA is also making minor technical edits in § 9.7(c)(1)(i)(C) and §
9.11(d)(3)(ii). In § 9.7(c)(1)(i)(C), FEMA is adding appropriate hyphenation to state
“0.2-Percent-Annual-Chance Flood Approach (0.2PFA): The 0.2 percent annual chance
flood” for consistency with the Revised Guidelines. In § 9.11(d)(3)(ii), FEMA is
correcting a grammatical error from “water tight” to “watertight.”
FEMA’s FFRMS policy is also being finalized with the publication of this rule
and will be effective with the rule’s implementation. FEMA is making minor clarifying
edits to the FFRMS policy consistent with commenters’ suggestions by further clarifying
the use of the 0.2PFA in coastal areas and making other technical edits to the document
for readability. Specifically, FEMA is making technical formatting and grammatical
edits on pages 1, 2, 3, 4, 7, 8, and 13. FEMA is adding clarifying language in section C.
In section C.2, FEMA is eliminating the reference to wave action in coastal areas at the
end of the paragraph. In section C.3.a, FEMA is adding the following clarifying text in
footnote 14 “In coastal areas Flood Insurance Rate Maps (FIRMs) and Flood Insurance
Studies (FISs) provide 1 percent AC flood elevations that account for the effects of wave
action. However, 0.2 percent AC flood elevations are generally stillwater elevations that
do not account for the effects of wave action. In coastal areas, if the 0.2 percent AC flood
elevation does not account for the effects of wave action, the FVA flood elevation must
be used.” FEMA is further eliminating section C.3.c consistent with these edits. FEMA
also edited Figure 1 in the FFRMS policy to clarify “AC” means “annual chance” at a
commenter’s request and reflect the clarifications to C.3 referenced above. Additionally,

FEMA updated section G.2 to reflect “Flood Risk Mitigation for Facilities.” FEMA
removed the term “non-structure” in that section because commenters expressed
confusion about the term.
IV. Regulatory Analyses
A. Executive Order 12866, Regulatory Planning and Review, as amended,
and Executive Order 13563, Improving Regulation and Regulatory
Review
Executive Orders 12866 (Regulatory Planning and Review), as amended by
Executive Order 14094 (Modernizing Regulatory Review), and 13563 (Improving
Regulation and Regulatory Review), directs agencies to assess the costs and benefits of
available regulatory alternatives and, if regulation is necessary, to select regulatory
approaches that maximize net benefits (including potential economic, environmental,
public health and safety effects, distributive impacts, and equity). Executive Order 13563
emphasizes the importance of quantifying costs and benefits, reducing costs, harmonizing
rules, and promoting flexibility. The Office of Management and Budget (OMB) has
designated this rule a “significant regulatory action” as defined under section 3(f) of
Executive Order 12866, as amended by Executive Order 14094, but it is not significant
under section 3(f)(1) because its annual effects on the economy do not exceed $200
million in any year of the analysis. Accordingly, OMB has reviewed this rule.
This analysis provides an assessment of the potential costs, benefits, and transfer
payments from the Updates to Floodplain Management and Protection of Wetlands
Regulations to Implement the Federal Flood Risk Management Standard (FFRMS) Final
Rule. For further detail please refer to the Regulatory Impact Analysis (RIA) in the
docket accompanying this rule.

FEMA is amending 44 CFR part 9 Floodplain Management and Protection of
Wetlands and issuing a supplementary policy286 to implement the FFRMS and update the
agency’s 8-step decision-making process used to determine whether an action would be
located within or affect a floodplain, and if so, whether and how to continue with, or
modify, the action.
The FFRMS is a flood resilience standard that is required for Federally funded
projects and provides a flexible framework to increase resilience against flooding and to
help preserve the natural values of floodplains and wetlands. A floodplain is any land
area that is subject to flooding and refers to geographic features with undefined
boundaries. FEMA will incorporate the FFRMS into its existing processes to ensure that
the floodplain for an action subject to the FFRMS is expanded from the current 1 percent
annual chance (100-year) floodplain based on the one percent annual chance elevation287
to a higher vertical elevation and corresponding horizontal floodplain; and that, where
practicable, natural systems, ecosystem processes, and nature-based approaches will be
considered when developing alternatives to locating Federal actions in the floodplain.
Under current FEMA regulations set out in 44 CFR part 9, the floodplain is
defined as the 100-year floodplain (1 percent annual chance) for non-critical actions and
the 500-year floodplain (0.2 percent annual chance) for critical actions. New
construction or substantial improvement of structures located in a floodplain must be
elevated to or above the 1 percent annual chance (100-year) flood level or base flood
elevation (BFE). For critical actions, the new construction or substantial improvement of
structures must be elevated to or above the 0.2 percent annual chance (500-year) flood

The final rule and policy contain content that is interrelated but not identical. For purposes of this
analysis, FEMA considers both documents as a single proposal.
287 The one percent annual chance elevation refers to the elevation to which floodwater is anticipated to rise
during the 1 percent annual chance flood (also known as the base or 100-year flood). Under Executive
Order 11988, non-critical actions must be elevated or floodproofed to at least the one percent annual chance
elevation (or base flood elevation). Critical actions must be elevated or floodproofed to at least the 0.2
percent annual chance flood (or 500-year) elevation.
level. Non-residential structures may be appropriately floodproofed rather than elevated
to meet the applicable flood level.
This rule will implement the supplemental FFRMS policy in the expanded
floodplain and codify implementation of the supplemental FFRMS policy in the current
floodplain. FEMA has interim policies for PA and HMA that partially implement
FFRMS, as discussed in further detail below. Depending on the program, these programs
apply the supplemental FFRMS policy either to the base floodplain, or to both the 100year (base floodplain) and 500-year floodplain (for critical actions). Following guidance
in OMB Circular A-4, FEMA assessed each impact of this rule against a pre-guidance
baseline. The pre-guidance baseline is an assessment against what the world would be
like if the relevant guidance (i.e., the partial interim policies for PA and HMA) were not
implemented.
At the time the Notice of Proposed Rulemaking (NPRM) RIA was conducted,
these partial implementation policies had been in place for less than 2 years. These
policies were issued as temporary, partial implementation of the FFRMS until FEMA
could implement it through this rulemaking. FEMA conducted this Regulatory Impact
Analysis against a pre-statutory baseline to capture the economic impacts of the FFRMS
and more accurately to measure the impacts of the rule against the world without the
interim PA and HMA policies.
Under the final rule, the Climate-Informed Science Approach (CISA) would
result in a flood elevation and corresponding horizontal expansion floodplain
determination utilizing the best-available, actionable hydrologic and hydraulic data and
methods that integrate current and future changes in flooding based on climate science.
The CISA is FEMA’s preferred policy approach, as FEMA believes it has the potential to
be the best and most well-informed approach to building resilience in an equitable
manner and ensuring a reduction in disaster suffering. CISA is designed to meet current

and future estimates of flood risks unique to the location and thus provide the best overall
resilience, cost effectiveness, and equity. The FFRMS requires FEMA to consider the
criticality of the action involved, the availability and actionability of data, and equity
concerns, as further explained in the supplementary policy. As actionable climate data
are not currently available for all locations, FEMA will utilize the Freeboard Value
Approach (FVA) and 0.2-Percent-Annual-Chance Flood Approach (0.2PFA) alternatives
in the absence of actionable CISA data. Specifically:
•

For critical actions288: FEMA will use the higher of the +3-foot FVA
floodplain or the 0.2PFA floodplain.289 Where the 0.2PFA data is not
available, the +3-foot FVA will be utilized.

•

For non-critical actions: FEMA will use the lower of the +2-foot FVA or
0.2PFA. 290

The floodplain established by the FVA is the equivalent of the 1 percent annual
chance floodplain (also known as the 100-year flood), plus either 2 or 3 feet of vertical
elevation, as applicable based on criticality, and a corresponding increase in the
horizontal extent of the floodplain. The increased horizontal extent will not be the same
in every case. When the same vertical increase is applied in multiple actions subject to
the FFRMS in different areas, the amount of the increase in the horizontal extent of the
respective floodplains will depend upon the topography of the area surrounding the
proposed location of the action.
The term 0.2PFA refers to the elevation to which floodwater is anticipated to rise
during the 0.2 percent annual chance flood (also known as the 500-year flood) and the

A critical action is any activity for which even a slight chance of flooding would be too great. A noncritical action is any activity not considered a critical action.
289 For all projects in coastal areas, if the 0.2 percent annual chance flood elevations do not account for the
effects of wave action, the appropriate FVA must be used to determine the FFRMS floodplain.
290 While application of the 0.2PFA may provide a more consistent reduction of flood risk as it is
probability based, the relationship to the FVA varies depending on topography (i.e., in some instances the
0.2PFA may result in a lower flood elevation than the FVA). Application of only the 0.2PFA without a
comparison to the FVA may result in building to a higher resilience standard than is necessary.
associated floodplain. The 0.2PFA generally covers a larger area than the 1 percent
annual chance floodplain.
Projects that are located near a Special Flood Hazard Area (SFHA)291, but not in
it, may be in the FFRMS floodplain. At the time the NPRM was published, there were no
FEMA products depicting the boundary of the FFRMS floodplain. For this reason,
FEMA and its interagency partners have developed and are continuing to develop various
tools, including the FFRMS Floodplain Determination Job Aid published on FEMA’s
website and in the public docket with this rulemaking and a web-based decision support
tool, Federal Flood Standard Support Tool (FFSST), that will provide the agency with
guides to determine which FFRMS floodplain approach has available and actionable data,
in map form, thus should be used for each project. The FFRMS Job Aid helps Federal
agencies and their non-federal partners (including potential Federal financial aid
recipients) conduct a screening to determine if a proposed Federally funded action will be
located within an FFRMS floodplain, based on any of the three approaches in accordance
with Sec. 2(a)(1) of Executive Order 11988, as amended. FEMA will leverage the
FFRMS Job Aid for determining the FFRMS floodplain when the final rule is
implemented. FEMA will continue to collaborate across the Federal government to
continue to develop the FFSST to facilitate the implementation of the CISA and the
FFRMS.
FEMA developed a flexible approach to implementing the FFRMS to maximize
the net benefits – quantified and unquantified – of the rule. Floods are expected to be
more frequent and more severe over the next century due to the projected effects of

The Special Flood Hazard Area is the area designated on FEMA regulatory mapping products depicting
a 1 percent annual chance floodplain.
changing conditions.[292][293] The ocean has warmed, polar ice has melted, and porous
landmasses have subsided.294 The global sea level has risen by about 8 inches since
reliable record keeping began in 1880.295 It is projected to rise upwards of 1 to 4 feet by
2100, affecting many coastal areas.[296][297][298] Floods are costly natural disasters;
between 1980 and 2022, the United States suffered more than $2.0 trillion (in 2022
dollars) in flood-related damages.299 This final rule will help protect FEMA funded
investments from future floods and will help minimize harm in floodplains by changing
the standards used to determine future risk for FEMA-funded new construction and
substantial improvement, and/or to address substantial damage to Federally funded
projects.
The requirements of this rule will apply to grants under FEMA programs such as
Individual Assistance (IA), Public Assistance (PA), and Hazard Mitigation
Assistance (HMA), as well as grants processed by FEMA’s Grants Programs Directorate
(GPD) (involving grants for preparedness activities), for projects funding new
construction, substantial improvement, or repair of substantial damage. The primary
focus of this analysis is to estimate the costs and benefits resulting from a higher vertical
National Oceanic and Atmospheric Administration. U.S. Department of Commerce. “Climate change
impacts.” https://www.noaa.gov/education/resource-collections/climate/climate-change-impacts. Last
accessed February 15, 2022.
293 U.S. Global Change Research Program (2014). Climate Change Impacts in the United States: The Third
National Climate Assessment. Available at: https://repository.library.noaa.gov/view/noaa/19485. Page 20.
Last accessed: April 16, 2024.
294 Ibid [page 21].
295 Ibid [page 21].
296 Global Change Research Program (2014). Climate Change Impacts in the United States: The Third
National Climate Assessment. Available at: https://repository.library.noaa.gov/view/noaa/19485. Page 20.
Last accessed: April 16, 2024.
297 Environmental Protection Agency (EPA). Supplementary Material for the Regulatory Impact Analysis
for the Supplemental Proposed Rulemaking. “Standards of Performance for New, Reconstructed, and
Modified Sources and Emissions Guidelines for Existing Sources: Oil and Natural Gas Sector Climate
Review.” Page 36. https://www.epa.gov/system/files/documents/2022-11/epa_scghg_report_draft_0.pdf.
Last accessed: September 14, 2023.
298 The EPA uses the Framework for Assessing Changes To Sea-level (FACTS) and Building Blocks for
Relevant Ice and Climate Knowledge (BRICK) sea-level rise models for their projections.
299 Climate.gov. “U.S. billion-dollar weather and climate disasters.”
https://www.ncei.noaa.gov/access/billions/summary-stats/US/1980-2022. Last accessed October 31, 2023.
Flood related damages are from flooding, severe storms, and tropical cyclones. Data is CPI adjusted.
Severe storms can include wind-related damages, but the source does not separate data out by type of
damage.
elevation and associated horizontal expansion of the floodplain for specific projects paid
for with Federal funds. The expected impacts of this final rule primarily result from the
cost of the increase in elevation or floodproofing requirements of structures in the
FFRMS floodplain. The majority of these costs will be funded by FEMA through several
grant programs. For the grant programs that have a cost-share requirement, FEMA grant
recipients typically will bear about 25 percent of the elevation and floodproofing project
costs. Additionally, FEMA expects to incur costs for administration of the FFRMS
requirements, including training FEMA personnel.
To estimate the number of projects that will be subject to the requirements of this
rule, FEMA used historical PA, IA, and HMA data. First, FEMA estimated the number
of past new construction, substantial improvement, or repairs to substantial damage
projects that are in the existing floodplain. Next, FEMA relied upon data from samples
of floodplain expansion at varying levels of freeboard in inland and coastal areas to
estimate an average percentage expansion of the floodplain under each of the three
FFRMS approaches. FEMA then multiplied the expansion percentages by the estimated
number of projects in the current floodplain to estimate the number of projects that will
be in the expanded floodplain under each of the FFRMS approaches.
To estimate the cost of the FFRMS elevation requirements, FEMA used reports
from the National Flood Insurance Program (NFIP) to determine the increased cost per
square foot associated with elevation and floodproofing. FEMA presents the costs as a
range because of uncertainty about whether new construction projects would choose to
floodproof or elevate.
Finally, to present the total impacts of the final rule, FEMA analyzed the impact
of the FVA, 0.2PFA, and CISA for each of the programs, PA, IA, and HMA, as if each
approach were the only FFRMS expansion option. This is because it is unknown exactly
how many projects will be subject to the FVA, 0.2PFA, or CISA requirements under the

final rule, as it will continue to change with the addition of CISA data over time.
Accordingly, FEMA estimated the costs of the requirements for each of the approaches
separately. This allows FEMA to create a range for each approach. FEMA is opting to
use this methodology because it allows for estimation of the highest and lowest probable
costs, transfers, and benefits associated with each of the FFRMS expansion options for
each of the programs.
FEMA limited its dollar-valuation to the projects impacted in the first 10 years
after the rule’s effective date.300 FEMA’s analysis focuses on the costs, benefits, and
transfer payments (i.e., impacts on FEMA grants), that will result over a 50-year period301
from the application of the requirements of the final rule to those projects, for a total
period of analysis spanning 60 years. For example, if a structure is built in Year 10, the
analysis covers 50 years of costs, benefits, and transfers for that structure starting in Year
10. However, if a structure is built in Year 11, that is outside of the first 10 years and so
the analysis does not consider the costs, benefits, or transfers of the FFRMS requirements
on that structure.302 The costs and transfers occur in the first 10 years of the 60-year
period because that is when the initial investment to elevate or floodproof those projects
takes place. This is an upfront cost that occurs when the project is constructed.
However, the benefits of the final rule are estimated over the 50-year useful life of the
affected structures.

FEMA used an average of the number of affected projects during the prior 10-year period to estimate the
average annual impacts of the future 10-year period.
301 The 50-year period is based on the 2022 Report, which assumed 50-year useful life for public buildings.
Therefore, FEMA estimated such benefits over a 50-year period. Please see section 7.14.2 of the RIA for
more information.
302 If FEMA limited the analysis to only 10 years of impacts, it would consider all of the costs and transfers
but only a small portion of the benefits from additional protection from flood events because the life of the
structure is more than 10 years. After year 10, the final rule would continue to impact FEMA projects
funding new construction, substantial improvements or repairs to fix substantial damage, but FEMA chose
to limit the analysis to 10 years of affected structures because it used 10 years of historical data, and due to
changing conditions, projecting impacts past 10 years would become less accurate due to an expected
increase in the frequency and severity of major disasters. Accordingly, FEMA’s analysis focuses on the
50-year impacts of the rule on projects that take place in the initial 10-year period, for a total period of
analysis spanning 60 years.
The table below provides the estimated number of structures and facilities that
will be affected by the final rule over the first 10 years, assuming that each approach is
the only expansion option. Structures that are walled and roofed buildings, will comply
with the FFRMS through elevating or floodproofing to the required height. Facilities,
which are any human-made or human-placed items other than structures, such as roads
and bridges, will require different mitigation measures in order to comply with the
increased resiliency standard of the final rule. The monetized impacts of this rule are
representative of the floodproofing and elevation mitigation measures that will be
required of structures. However, for reasons explained in more detail later, FEMA was
unable to monetize the impacts of the rule for facilities.
Table 4: Estimated Number of Structures and Facilities Affected by the Final Rule in Years 1-10 For Each
Approach as if Each Approach Were the Only Expansion Option[303][304]
Structures
Facilities
FFRMS
Total
Total
Total
HM
Approach
Structures
Facilities
Projects
PA
IA
HMA
PA
A
899
1,434
7,755
10,088
26,144
841
26,985
37,073
FVA
688
1,434
7,712
9,834
26,144
841
26,985
36,819
0.2PFA
1,154
1,924
10,398
13,476
26,144
841
26,985
40,461
CISA

The final rule will increase construction and resiliency standards for FFRMSaffected structures and facilities. FEMA considers implementing these standards,
whether through higher vertical elevation, floodproofing, or other mitigation measures, to

From 2013-2022, for PA, FEMA funded a total of 199,993 projects for $172.6 billion (CPI adjusted to
2022 dollars). Of that total number of projects, FEMA funded $22.8 billion (CPI adjusted to 2022 dollars)
for all PA Category E projects, which is about 13.2 percent ($22.8 billion ÷ $172.6 billion) of the total
FEMA PA funding. For PA Category E projects within the floodplain, FEMA funded $1.2 billion (CPI
adjusted to 2022 dollars) which is about 0.7 percent ($1.2 billion ÷ $172.6 billion) of all FEMA PA funding
or 2,437 projects which is about 1.2 percent (2,437 projects ÷ 199,993 projects) of all FEMA PA projects.
From 2013-2022, for HMA, FEMA funded a total of 8,761 projects. There are no data fields that show
whether a project is located in a floodplain. Therefore, FEMA used the assumption that all HMA projects
were located in the floodplain. This may lead to an overestimate in the costs associated with HMA
projects.
From 2013-2022, for IA, FEMA funded a total of 13,576 THU and 184 PHC projects. FEMA assumed that
11.1 percent of IA PHC and THU projects would be located in the floodplain, based on PA project data.
Accordingly, FEMA estimated a 20 (184 PHC projects × 11.1 percent) PHC projects and 1,507 (13,576
THU projects × 11.1 percent) THU projects in the current floodplain in years 1-10 of the analysis.
304 These counts are based on the number of closed or obligated projects at the time of analysis. It can take
several years for a project to close out or reach the obligation status after the disaster year.
be new economic activity that will result from this rule. Accordingly, these compliance
activities are categorized as costs of this rule.
FEMA analyzed the impact of the FVA, 0.2PFA, and CISA for each of the
programs, PA, IA, and HMA, as if each approach were the only FFRMS expansion
option. FEMA selected the CISA as the primary approach as it is the preferred option.
Using the CISA as the primary approach, FEMA has estimated that this final rule will
affect 13,476 PA, IA, and HMA structures over the first 10 years. The low estimate305
cost will be between $134.0 million and $110.4 million, discounted at 3 and 7 percent
respectively, with a 60-year annualized cost between $4.8 million and $7.9 million,
discounted at 3 and 7 percent. The high estimate cost will be between $169.8 million and
$139.9 million, discounted at 3 and 7 percent respectively, with a 60-year annualized cost
between $6.1 million and $10.0 million, discounted at 3 and 7 percent respectively.
These costs include additional training for FEMA staff, as well as the total cost for
additional elevation and floodproofing. FEMA is unable to quantify the cost for
increased resiliency standards for an estimated 26,985 affected facility projects over the
first 10-year period of the analysis. Additionally, FEMA is unable to quantify the cost
for projects that may be diverted out of the floodplain, impacts to projects with existing
basements, project delays, or forgone projects that may result from this rule.
Because the cost to implement the FFRMS mitigation measures will be shared
between FEMA and grant recipients according to statutory cost shares, there are also
important distributional impacts. The majority of these costs will be borne by FEMA
through additional grants (a transfer from FEMA to grant recipients). Grant recipients
will bear the remaining costs. Using the CISA as the primary approach, FEMA estimates
that this final rule will affect 13,476 structures in the first 10 years. FEMA presents the
FEMA estimated a range of possible costs since it was not able to accurately estimate the number of
new construction projects that would elect to elevate versus those that would elect to floodproof, so
estimates are provided for both the cost of elevating all new construction projects and the costs of
floodproofing all new construction projects.
change in transfer payments from FEMA to grant recipients as a range because of
uncertainty regarding whether new construction projects would be floodproofed or
elevated. The low estimate ranges between $104.7 million and $86.2 million, discounted
at 3 and 7 percent respectively, with a 60-year increase in transfers between $3.8 million
and $6.1 million annually, discounted at 3 and 7 percent respectively. The high estimate
ranges between $134.2 million and $110.5 million, discounted at 3 and 7 percent
respectively, with a 60-year increase in transfers between $4.8 million and $7.9 million
annually, at 3 and 7 percent respectively.
Grant recipients will be responsible for between $22.6 million and $18.6 million,
discounted at 3 and 7 percent respectively, with a 60-year annualized amount between
$0.8 million and $1.3 million, at 3 and 7 percent respectively for the low estimate. The
high estimate ranges between $27.8 million and $22.9 million, discounted at 3 and 7
percent respectively, with a 60-year annualized amount of $1.0 million and $1.6 million,
at 3 and 7 percent respectively. Not included in these estimates are the additional grants
FEMA will provide or the additional costs recipients will incur for their portion of the
cost share, for any of the elevation and floodproofing costs that FEMA is unable to
monetize.
FEMA has been able to quantify benefits for a small portion of projects affected
by the rule. Using CISA as the primary approach, FEMA estimates that 1,154 PA
Category E (Public Buildings)306 projects will be subject to the FFRMS in the first 10
years. Assuming a 59-inch Sea Level Rise,307 FEMA estimates that the present value
benefits of one additional foot of freeboard for the 50-year useful life of projects
undertaken during the 10-year period of analysis ranges at the low end between $56.1

FEMA Public Assistance. https://www.fema.gov/fact-sheet/fema-public-assistance-0. Accessed April
23, 2024.
307 For FEMA’s primary estimate, FEMA used 59 inches of SLR, due to it being the closest SLR option to
FEMA’s +5-ft assumption for CISA. CISA is the preferred approach for FFRMS if the data are available.
Since 5 ft is equivalent to 60 inches (5 × 12 inches per foot), 59-inch SLR is the closest SLR option that
FEMA has available to use for this portion of the analysis.
million and $46.2 million, discounted to the beginning of Year 1 at 3 and 7 percent
respectively, with a 60-year annualized benefit between $2.0 million and $3.3 million.
The high estimate ranges between $66.1 million and $54.4 million, discounted to the
beginning of Year 1 at 3 and 7 percent respectively, with a 60-year annualized benefit
between $2.4 million and $3.9 million. These quantified benefits include estimates of
avoided physical damage, avoided displacement, and avoided loss of function for the
1,154 PA Category E projects over their 50-year useful life. In addition, unquantified
benefits of this final rule include the reduction in damage to 12,322 affected IA and HMA
structures and their contents from future floods, 26,985 PA and HMA facilities, potential
lives saved, public health and safety benefits, reduced recovery time from floods, and
increased community resilience to flooding.
Table 5 shows the summary of the total costs, benefits, and distributional impacts
of the final rule.
Table 5: Summary of the Impacts of the Final Rule (2022$)

Category

Regulatory and
Policy Changes

Affected
Population

Summary
Adds language to incorporate the best available and actionable science into
determinations for Federally funded projects.
Adds approach to developing the alternative actions, the agency shall use, where
possible, natural systems, ecosystem processes, and nature-based approaches.
Updates the dollar thresholds for the applicability of the 8-step process to repairs
under sections 406 and 407 to $18,000 for 2022. Also adds that the thresholds will
be adjusted annually for inflation.
Establishes a process to determine whether the FFRMS action is located in a
wetland and/or a floodplain.
Incorporates FFRMS approaches into regulations. FEMA’s supplementary policy
will be using CISA as the preferred approach to establishing the FFRMS
floodplain and resilience requirements if the data are available. If CISA is not
available, for critical actions, use the higher of +3 FVA or 0.2PFA floodplain. If
0.2PFA data are not available, use +3 FVA. For non-critical actions, use the lower
of FVA or 0.2PFA floodplain unless the 0.2PFA does not account for wave action.
If 0.2PFA is not available use +2 FVA.
Adds an exception to use of the FFRMS floodplain in limited situations involving
national security and emergency actions.
Clarification that the minimization standards required of 44 CFR §9.11 are
applicable to all of FEMA’s grant programs, not just grant programs authorized by
the Disaster Relief Act of 1974.
The FFRMS elevation requirements will apply to those actions subject to the
FFRMS in the applicable FFRMS floodplain. Grant recipients will be required to
comply with the new standard by elevating or floodproofing projects located in the
expanded FFRMS floodplain. Specific grant programs include IA, PA, and HMA.
Using CISA as the primary approach, FEMA limited its dollar-valuation to the
projects impacted in the first 10 years after the rule’s effective date, FFRMS will

Transfers

Costs (quantitative)

Costs (qualitative)

Benefits
(quantitative)

Benefits
(qualitative)

impact the following number of structures: 1,154 PA projects, 1,924 IA projects,
and 10,398 HMA projects, for a total of approximately 13,476 structure projects.
FEMA also estimates FFRMS will impact the following number of facilities:
26,144 PA projects and 841 HMA projects, for a total of approximately 26,985
facility projects in years 1-10.
The majority of elevation and floodproofing costs will be funded by FEMA
through several grant programs. Using CISA as the primary approach, FEMA
estimates 13,476 affected PA, IA, and HMA structures. Discounted, the low
estimate will be between $104.7 million and $86.2 million, using 3 and 7 percent
respectively, with a 60-year transfer between $3.8 million and $6.1 million
annually, at 3 and 7 percent respectively. Discounted, the high estimate will be
between $134.2 million and $110.5 million, using 3 and 7 percent respectively,
with a 60-year transfer between $4.8 million and $7.9 million annually, at 3 and 7
percent respectively. These transfer payments will occur in the first 10 years of the
60-year period because that is when the investment in those projects takes place.
Not included in these estimates are the additional grants FEMA will provide, and
additional costs recipients will incur for their portion of the cost share, for any of
the elevation and floodproofing costs that FEMA is unable to monetize.
Using CISA as the primary approach, FEMA estimates that this final rule will
affect 13,476 PA, IA, and HMA structures. Discounted, the low estimate cost for
these projects will be between $134.0 million and $110.4 million, using 3 and 7
percent respectively, with a 60-year annualized cost between $4.8 million and $7.9
million, using 3 and 7 percent. Discounted, the high estimate cost for these projects
will be between $169.8 million and $139.9 million, using 3 and 7 percent
respectively, with a 60-year annualized cost between $6.1 million and $10.0
million, using 3 and 7 percent respectively. These costs include additional training
for FEMA staff, time for FEMA staff to make FFRMS floodplain determinations,
the time for FEMA staff to make floodplain determinations, as well as the cost for
the additional elevation and floodproofing this rule would require. These costs
will be incurred in the first 10 years of the 60-year period because that is when the
investment in those projects takes place.
Diversion of projects out of the floodplain.
Increase in resiliency standard for an estimated 26,985 affected facility projects
over 10 years
Additional costs for adding requirements to building with basements
Lifecycle maintenance costs for floodproofing
Project delays and forgone projects.
FEMA is able to quantify benefits for a portion of projects affected by the rule.
Using CISA as the primary approach, FEMA estimates that 1,154 PA structures
will be subject to the FFRMS over the 10-year period after the rule’s publication.
Assuming a 59-inch Sea Level Rise, FEMA estimates the present value benefits of
one additional foot of freeboard for the 50-year useful life of projects undertaken
in the first 10 years after the rule’s effective date. The low estimate ranges
between $56.1 million and $46.2 million, discounted to the beginning of Year 1, at
3 and 7 percent respectively, with a 50-year annualized benefit of $2.0 million and
$3.3 million, at 3 and 7 percent. The high estimate ranges between $66.1 million
and $54.4 million, discounted to the beginning of Year 1 at 3 and 7 percent
respectively, with a 50-year annualized benefit of $2.4 million and $3.9 million, at
3 and 7 percent respectively. These quantified benefits include avoided physical
damage, avoided displacement, and avoided loss of function for the 1,154 PA
projects estimated over the 50-year useful life of public buildings.
Reduction in damage to properties and contents from future floods for
approximately 12,322 IA and HMA structure projects and 26,985 PA and HMA
facility projects, potential lives saved, public health and safety benefits, reduced
recovery time from floods, and increased community resilience to flooding.

PA Projects
FEMA provides PA grants to public and certain non-profit entities for the
rebuilding, replacement, or repair of public and non-profit structures and facilities
damaged by disasters. PA projects that involve new construction, substantial
improvement, or repairs to address substantial damage are affected by this rule. FEMA
divides its PA work into categories A-G.308 Projects that get funding under PA
Categories C (Roads and Bridges), D (Water Control Facilities), E (Public Buildings), F
(Utilities), and G (Parks, Recreational Areas, and Other Facilities) are affected by this
rule, but FEMA is only able to provide estimates of costs associated with
Category E (Public Buildings). FEMA has adequate data to estimate the additional costs
for structures subject to the FFRMS, so monetized impacts are only available for
Category E projects. The remaining PA categories fund facilities that are not subject to
the same elevation and floodproofing requirements as buildings.
44 CFR Part 9 classifies projects as either structures or facilities. Under this rule,
a structure is a walled and roofed building, including mobile homes and gas or liquid
storage tanks. Structures will be subject to freeboard requirements to floodproof or
elevate to a certain level above the BFE. Freeboard is the additional height above the
BFE to which the structure is floodproofed or elevated for the purpose of reducing the
risk of flood damage.
In contrast, facilities are any human-made or human-placed item other than a
structure, including roads, bridges, power lines, water control facilities, and other types of
infrastructure. Facility mitigation measures are more varied and highly project-specific.
For example, damage to roads during flood events can be caused by numerous events,
such as erosion and scour, inundation by floodwater, or debris blockage. Likewise, the

PA Category A-Debris Removal and Category B-Emergency Protective Measures do not fund building
or repair of structures and are not subject to the FFRMS.
mitigation measures to address the damages can include a variety of approaches, such as
installing low water crossings, increasing culvert size, installing a relief culvert, adding
riprap to a road embankment, and many others.309
Due to the highly project-specific nature of facilities projects, and the numerous
options available for making them resilient, FEMA cannot estimate the costs of
improving flood resiliency of facilities. Where FEMA provides funding for facilities to
complete new construction, substantial improvement, or repairs to address substantial
damage, the projects must incorporate minimization measures that will consider the
FFRMS flood elevation. However, floodproofing and elevation to a specific height may
not be appropriate as a minimization measure for facilities, depending on the facility.
FEMA cannot estimate the cost due to the variability of those measures, which may
include a variety of approaches. Facilities that are already located in the 1 percent annual
chance floodplain for non-critical actions or 0.2 percent annual chance floodplain for
critical actions must take resilience measures under current regulations. Based on 20132022 data, FEMA estimates that about 1,036 Category C projects, 120 Category D
projects, 208 Category F projects, and 314 Category G projects may be affected by the
FFRMS each year.
For PA Category E projects, if the FVA is the only expansion option, FEMA
estimates the final rule will affect 899 projects over the first 10 years. The costs would
be incurred in the first 10 years of the 60-year period because that is when the investment
in those projects takes place. Accordingly, FEMA estimated that the average annual
costs in years 1-10 will range between $4.3 million and $5.5 million. The average
Federal cost share for PA projects from 2013-2022 was 85.0 percent. Accordingly,
FEMA estimates that it will cover 85.0 percent of the cost to elevate or floodproof PA

FEMA. “FEMA B-797 Hazard Mitigation Field Book: Roadways.” 2010. Available at
https://www.fema.gov/sites/default/files/2020-07/b797_hazmit_handbook.pdf
projects, for a total of between $3.6 million and $4.7 million in additional grants per year
for the first 10 years. Grant recipients will bear the remaining cost of between $0.6
million and $0.8 million per year for the first 10 years.
For PA Category E projects, if 0.2PFA is the only expansion option, FEMA
estimates the final rule will affect 688 projects over the first 10 years. Because these
costs are incurred in the first 10 years, FEMA estimated the average annual costs in years
1-10 will range between $2.5 million and $3.2 million. Using the historical average 85.0
percent Federal cost share, FEMA estimates that it will cover 85.0 percent of the cost to
elevate or floodproof PA projects, for a total of between $2.1 million and $2.8 million in
additional grants per year for the first 10 years. Grant recipients will bear the remaining
costs of approximately $0.4 million and $0.5 million per year for the first 10 years.
For PA Category E projects, if CISA is the only expansion option, FEMA
estimates the final rule will affect 1,154 projects over the first 10 years. Because these
costs are incurred in the first 10 years, FEMA estimated the average annual costs in years
1-10 will range between $10.4 million and $14.5 million. Using the historical average
85.0 percent Federal cost share, FEMA estimates that it will cover 85.0 percent of the
cost to elevate or floodproof PA projects, for a total of between $8.9 million and $12.3
million in additional grants per year for the first 10 years. Grant recipients will bear the
remaining cost of between $1.6 million to $2.2 million per year for the first 10 years.

Table 6: Summary of FFRMS PA Category E Annual Project Costs and Distributional Impacts by Approach

Annual cost (Years 1-10)

FVA
$4,272,069

0.2PFA
$2,474,052

CISA
$10,434,180

FEMA’s portion (grants
from FEMA to recipients)
Recipients’ portion
Annual cost (Years 1-10)

$3,631,259
$640,810
$5,549,873

$2,102,944
$371,108
$3,241,488

$8,869,053
$1,565,127
$14,497,988

Low Estimate

High Estimate

Unquantified

FEMA’s portion (grants
from FEMA to recipients)
$4,717,392
$2,755,265
$12,323,290
Recipients’ portion
$832,481
$486,223
$2,174,698
Increase in resiliency standard for structures that would affect an estimated 1,036 Category C
projects, 120 Category D projects, 208 Category F projects, and 314 Category G projects per year.

IA Projects
Individual Assistance (IA) grants are provided to individuals who, as a direct
result of a disaster, have necessary expenses and serious needs that they are unable to
meet through other means. IA funding is divided into Housing Assistance and Other
Needs Assistance. Other Needs Assistance under IA provides financial assistance for
medical, dental, childcare, funeral, personal property, transportation, or other necessary
expenses or serious needs and is not subject to FFRMS requirements. Under Housing
Assistance, FEMA may provide temporary housing assistance (financial assistance or
direct assistance in the form of temporary housing units), a capped amount of financial
assistance for the repair or replacement of disaster-damaged private residences; and, in
rare circumstances, financial or direct assistance to construct permanent or semipermanent housing.
The financial caps on housing repair or replacement assistance means IA grants
do not generally fund new construction or substantial improvements. However, two
types of IA grants are affected by the final rule: IA Permanent Housing Construction
(PHC) projects, and sales and disposal of temporary housing units (THUs). PHC is
Federal assistance that FEMA provides under IA for the purpose of constructing
permanent housing where alternative housing resources are unavailable or scarce. IA
also includes the sale and disposal of THUs such as mobile housing units and recreational
vehicles; THUs located in the FFRMS floodplain will be subject to the requirements of

this rule. FEMA regulations prohibit the floodproofing of residential structures at or
below the BFE, and so elevation is the only option.310
FEMA has calculated the cost of elevating PHC structures, depending on FFRMS
approach and location and type of project.311 FEMA then subtracted certain costs that it
determined to be part of the baseline. Specifically, numerous States and localities have
existing freeboard requirements that will result in elevation costs and benefits regardless
of this rule, so costs and benefits for these areas have been reduced based on existing
requirements.
For IA, if the FVA is the only expansion option, FEMA estimates that the final
rule will affect 1,434 structures over the first 10 years. These costs would be incurred in
the first 10 years of the 60-year period because that is when the investment in those
projects takes place. Accordingly, FEMA estimates average annual costs of $57,343 in
years 1-10. Since there is no cost share for IA, FEMA will fund the entire cost of
elevating IA projects through grants.
For IA, if the 0.2PFA is the only expansion option, FEMA estimates that the final
rule will affect 1,434 structures over the first 10 years. Because these costs would be
incurred in the first 10 years of the analysis, FEMA estimates the average annual cost in
years 1-10 is $57,343. Since there is no cost share for IA, FEMA will fund the entire cost
of elevating IA projects through grants.

See 44 CFR 60.3.
See also Floodproofing. FEMA. Available at: https://www.fema.gov/glossary/floodproofing. Last
accessed: January 11, 2023.
311 Projects outside of the 1 percent annual chance floodplain, but below the required level will need to be
elevated to the required level. These projects require elevations of different levels, depending on the
structure’s current elevation. FEMA assumes that half of the projects will need to be elevated 1-ft and the
other half or projects will need to be elevated 2-ft. This assumption was made because FEMA is unsure of
the actual number of projects that will need to be elevated by 1-ft or 2-ft and so assumed that it will be an
even proportion for each height. IA projects is all considered non-critical actions and will not require a 3-ft
level.
For IA, if the CISA is the only expansion option, FEMA estimates that the final
rule will affect 1,924 projects over the first 10 years.312 Because these costs would be
incurred in the first 10 years of the analysis, FEMA estimates that the average annual cost
in years 1-10 is $168,174. Since there is no cost share for IA, FEMA will fund the entire
cost of elevating IA projects through grants.
Table 7: Summary of FFRMS IA Annual Project Costs and Distributional Impacts by Approach

Annual cost (Years 1-10)
FEMA’s portion (grants from FEMA to recipients)
Recipients’ portion

FVA
$57,343
$57,343
$0

0.2PFA
$57,343
$57,343
$0

CISA
$168,174
$168,174
$0

HMA Projects
FEMA provides Hazard Mitigation Assistance (HMA) grants to States, territories,
Federally-recognized Tribes, and local communities for the implementation of hazard
mitigation measures to increase resiliency to disasters. Hazard mitigation is defined as
any action taken to reduce or eliminate long-term risk to people and property from natural
hazards. HMA projects related to flood mitigation mainly include elevation of structures,
floodproofing of structures, and acquisition of properties that are at a high risk of damage
from flooding. HMA also funds various other types of projects such as minor flood
control, property acquisition, and generators, but FEMA is unable to estimate the
potential costs associated with these projects because the manner in which each applicant
meets the resiliency standards will be fact-specific and dependent upon the nature of the
design and purpose of the project. HMA grant program includes Hazard Mitigation
Grant Program (HMGP), HMGP Post Fire, Pre-Disaster Mitigation (PDM), Building
Resilient Infrastructure and Communities (BRIC), and Flood Mitigation Assistance
(FMA). Between 2010 and 2019, FEMA funded a total of 841 minor flood control and

For analysis purposes, FEMA calculated the expanded floodplain using the mid-point (and rounded
down) to +5-ft CISA which would expand the floodplain by 26 percent. FEMA opted for the mid-point for
CISA because this is the best approach with available data. Please see further explanation in the appropriate
CISA sections: 7.4.3, 7.5.3, and 7.6.3.
generators projects, for an average of 84 such projects per year. Additional minor
mitigation measures will have to be taken for these projects, if located in the expanded
FFRMS floodplain.
FEMA used data from HMA grant approvals for projects that include the
elevation or floodproofing of structures from 2010-2019 and a multi-step process to
estimate the range of costs for elevating or floodproofing these structures to the FFRMS.
For HMA, if the FVA is the only expansion option, FEMA estimated the final
rule will affect 7,755 structures over the first 10 years. These costs would be incurred in
the first 10 years of the 60-year period because that is when the investment in those
projects would take place. Accordingly, FEMA estimates average annual costs in years
1-10 of $1.8 million. Using the 75 percent Federal cost share, FEMA estimates that it
will cover 75 percent of the cost to elevate or floodproof HMA projects, for a total of
$1.4 million in additional grants per year in years 1-10. Grant recipients will bear the
remaining cost of $0.5 million per year.
For HMA, if the 0.2PFA is the only expansion option, FEMA estimated that the
final rule will affect 7,712 structures in the first 10 years. Because these costs would be
incurred in the first 10 years of the analysis, FEMA estimates the average annual cost in
years 1-10 will be $1.8 million. Using the 75 percent Federal cost share, FEMA
estimates that it will cover 75 percent of the cost to elevate or floodproof HMA projects,
for a total of $1.4 million in additional grants per year in years 1-10. Grant recipients
will bear the remaining cost of $0.5 million per year.
For HMA, if the CISA is the only expansion option, FEMA estimated that the
final rule will affect 10,398 structures over the first 10 years. Because these costs would
be incurred in the first 10 years, FEMA estimates that the average annual cost in years 110 is $4.3 million. Using the 75 percent Federal cost share, FEMA estimates that it will
cover 75 percent of the cost to elevate or floodproof HMA projects, for a total of $3.2

million in additional grants per year. Grant recipients will bear the remaining cost of
$1.1 million per year.
Table 8: Summary of FFRMS HMA Structure Annual Project Costs and Distributional Impacts by Approach

FVA

Quantified
Estimates
Unquantified

0.2PFA

CISA

Annual cost (Years 1-10)
$1,848,298
$1,809,364
$4,319,206
FEMA’s portion (grants
from FEMA to
recipients)
$1,386,224
$1,357,023
$3,239,406
Recipients’ portion
$462,074
$452,341
$1,079,802
Increase in resiliency standard for an estimated 84 minor flood controls and
generators projects per year

Need for Regulation
Executive Order 11988, as amended, requires agencies to improve the resilience
of communities and Federal assets against the impacts of flooding. The FFRMS is a
flood resilience standard that provides a flexible framework to increase resilience against
flooding and help preserve the natural values of floodplains and wetlands. Incorporating
the FFRMS ensures FEMA expands flood risk management from the current base flood
elevation to a higher vertical elevation and corresponding horizontal floodplain to address
current and future flood risk and ensure that projects funded with taxpayer dollars last as
long as intended.
Affected Population
The affected population is FEMA grant recipients whose projects are located in
the current and the expanded FFRMS floodplain. Grant recipients will be required to
comply with the new standard by elevating or floodproofing projects located in the
expanded FFRMS floodplain. Specific grant programs include PA, IA, and HMA. PA
grant recipients include public and certain non-profit entities, IA grant recipients include
individuals, and HMA grant recipients include States, territories, Federally-recognized
Tribes, and local communities.
The implementation of the FFRMS will have negligible impacts on community
property values, tax bases and the distribution of real income. Additionally, FEMA

expects the impacts on affordable housing for low to moderate income households and
disadvantaged communities to be minimal since most actions subject to FFRMS
requirements are non-residential. FEMA only funds residential construction in the IA
and HMA programs; FEMA funds 153 residential IA projects and 268 HMA residential
projects per year on average.
Baseline
Under current FEMA regulations set out in 44 CFR part 9, the base floodplain is
defined as the 100-year floodplain (1 percent annual chance), or for critical actions,
defined as the 500-year floodplain (0.2 percent annual chance). New construction or
substantial improvement of structures located in the base floodplain must be elevated to
or above the 1 percent annual chance flood level or Base Flood Elevation (BFE) or
floodproofed below the BFE. Critical actions located within either the 1 percent annual
chance floodplain or the 0.2 percent annual chance floodplain must be elevated or
floodproofed up to the corresponding elevation for the 0.2 percent annual chance
floodplain where it is mapped.313
FEMA has interim policies for PA and HMA that partially implement FFRMS
and ASCE 24 standards in some areas, discussed in further detail below. Depending on
the criticality of the action, these programs apply the supplemental FFRMS policy either
to the base floodplain, or to both the 100-year and 500-year floodplains for critical
actions. At the time the NPRM RIA was conducted, these partial implementation
policies had been in place for less than 2 years. These policies were issued as temporary,
partial implementation of the FFRMS until FEMA could implement it through this
rulemaking. FEMA conducted this Regulatory Impact Analysis against a pre-statutory

FEMA’s project level data for IA, PA, and HMA delineate whether projects are in the Special Flood
Hazard Area (1 percent annual chance floodplain) but do not show whether they are in the 0.2 percent
chance floodplain. For critical actions, FEMA was unable to determine the baseline number of critical
actions that are located in the 0.2 percent chance floodplain. Regardless of which floodplain the project is
in, a critical action must be elevated at or above the 0.2 percent annual chance flood level.
baseline to capture the economic impacts of the FFRMS and more accurately to measure
the impacts of the rule against the world without the interim PA and HMA policies.
Likewise, data on projects that adhered to the ASCE 24 standards is not available.
Accordingly, FEMA used a pre-guidance baseline for this final rule to measure the
impacts of the rule against the world without these policies and in accordance with the
current requirements of 44 CFR Part 9.
PA Interim Policy
The June 3, 2022 PA interim partial implementation policy314 provides elevation
requirements for critical and non-critical actions involving structures located in a
designated floodplain. The policy established requirements for elevating and
floodproofing structures funded under the PA program. The interim policy set forth
principles at its issuance that ensure that communities affected by future flooding are less
vulnerable to losses of life and property, that investment of PA program funds for
projects in the floodplain are spent to protect structures from flood risk, that structures are
elevated or floodproofed to address current and future flood risk, and that the policy is
implemented in a consistent and equitable manner.
This policy is being applied to structures (walled or roofed buildings, including
mobile homes and gas or liquid storage tanks) in a mapped or established 1 percent
annual chance floodplain or 0.2 percent annual chance floodplain315 that have a

Partial Implementation of the Federal Flood Risk Management Standard for Public Assistance (Interim).
FEMA Policy 104-22-0003. Available at: https://www.fema.gov/sites/default/files/documents/fema_fp104-22-0003-partial-implemetnation-ffrms-pa-interim.pdf. Last accessed: July 20, 2022.
315 Under 44 CFR § 9.4, Floodplain means the “lowland and relatively flat areas adjoining inland and
coastal waters including, at a minimum, that area subject to a one percent or greater chance of flooding in
any given year. Wherever in this regulation the term floodplain is used, if a critical action is involved,
floodplain shall mean the area subject to inundation from a flood having a 0.2 percent chance of occurring
in any given year (500-year floodplain). Floodplain does not include areas subject only to mudflow until
FIA adopts maps identifying M Zones.”
substantial damage316 determination, require substantial improvement,317 or involve new
construction.318 This applies regardless of the cause of damage.
HMA Interim Policy
The August 26, 2021 HMA interim partial implementation policy319 sets forth the
elevation requirements for the use of FEMA HMA for non-critical actions involving
structure elevation, dry floodproofing, and mitigation reconstruction projects in the 1
percent annual chance floodplain. [320][321]
The updated HMA interim policy,322 which supersedes the initial HMA interim
policy, provides elevation requirements for critical and non-critical actions involving
structures (as defined in 44 CFR § 9.4) located in a designated floodplain. This updated
interim policy covers the additional flexibility for non-critical actions to select the lower
of the 0.2PFA or +2-ft above the BFE and setting elevation requirements for critical
actions involving structures.
Under 44 CFR § 59.1, Substantial Damage means “damage of any origin sustained by a structure
whereby the cost of restoring the structure to its before damaged condition would equal or exceed 50
percent of the market value of the structure before the damage occurred.”
317 Under 44 CFR § 9.4, Substantial Improvement means “any repair, reconstruction or other improvement
of a structure or facility, which has been damaged in excess of, or the cost of which equals or exceeds, 50%
of the market value of the structure or replacement cost of the facility (including all public facilities as
defined in the Disaster Relief Act of 1974) (a) before the repair or improvement is started, or (b) if the
structure or facility has been damaged and is proposed to be restored, before the damage occurred. If a
facility is an essential link in a larger system, the percentage of damage will be based on the relative cost of
repairing the damaged facility to the replacement cost of the portion of the system which is operationally
dependent on the facility. The term substantial improvement does not include any alteration of a structure
or facility listed on the National Register of Historic Places or a State Inventory of Historic Places.”
318 Under 44 CFR § 9.4, New Construction means “the construction of a new structure (including the
placement of a mobile home) or facility or the replacement of a structure or facility which has been totally
destroyed.”
319 Partial Implementation of the Federal Flood Risk Management Standard for Hazard Mitigation
Assistance Programs (Interim). FEMA Policy FP-206-21-0003. Available at:
https://www.fema.gov/sites/default/files/documents/fema_policy-fp-206-21-0003-partial-mplementationffrms-hma-programs-interim.pdf. Last accessed: July 20, 2022.
320 FEMA implemented an update to the HMA interim policy on December 2022. This updated interim
policy provides updated elevation requirements for critical and non-critical actions involving structures as
defined in 44 CFR Part 9.4 located in a designated floodplain. The updated interim policy also provides
updated requirements for elevating and floodproofing structures funded under HMA programs. The RIA
does not address the changes in the updated HMA interim policy.
321 The 1 percent annual chance floodplain is currently also defined as the Special Flood Hazard Area under
the NFIP.
322 Partial Implementation of the Federal Flood Risk Management Standard for Hazard Mitigation
Assistance Programs. FEMA Policy 206-21-003-0001. Available at:
https://www.fema.gov/sites/default/files/documents/fema_policy-fp-206-21-003-0001-implementationffrms-hma-program_122022.pdf. Last accessed: December 30, 2022.
By partially implementing the FFRMS and requiring a higher vertical flood
elevation for certain non-critical actions, FEMA is helping to ensure that communities
affected by future flood disasters are less vulnerable to losses of life and property. This
policy purpose is to improve the resilience of non-critical actions involving structure
elevation, dry floodproofing, and mitigation reconstruction projects located in the SFHA
against the impacts of flooding, which are anticipated to increase over time due to
changing conditions and other threats; and to ensure such projects will last as long as
intended.
Total Costs
This final rule will increase costs for certain IA, PA, and HMA program projects,
as well as result in administrative costs for FEMA. FEMA expects minimal effects on
grants processed by FEMA’s GPD because these programs involve grants for
preparedness activities and generally do not fund new construction or substantial
improvement projects. Future FEMA facilities that may be located within the FFRMS
floodplain will also be subject to the requirements of the final rule.
FEMA is unable to quantify the cost for increased resiliency standards for the
26,985 facility projects estimated to be affected in the first 10 years after this rule’s
publication. Additionally, FEMA is unable to quantify the cost for projects that may be
diverted out of the floodplain, impacts to projects with existing basements, project delays,
or forgone projects that may result from this rule.
Using the CISA as the primary approach, FEMA estimates that the final rule will
affect 13,476 PA, IA, and HMA structures over the first 10 years. Those costs are
incurred in the first 10 years of the 60-year period because that is when the investment in

those projects takes place.323 Discounted over 60 years, the low estimate324 cost is
between $134.0 million and $110.4 million, using 3 and 7 percent respectively, with a 60year annualized cost of $4.8 million and $7.9 million, using 3 and 7 percent respectively
(see Table 9). Discounted over 60 years, the high estimate cost is between $169.8 million
and $139.9 million, using 3 and 7 percent respectively, with a 60-year annualized cost of
$6.1 million and $10.0 million, using 3 and 7 percent (see Table 10). Monetized costs
include additional training for FEMA staff as well as the cost for the additional elevation
or floodproofing. FEMA is unable to quantify the cost for increased resiliency standards
for an estimated 26,985 affected facility projects over the 10-year period of analysis.
Additionally, FEMA is unable to quantify the cost for projects that may be diverted out of
the floodplain, impacts to projects with existing basements, project delays, or forgone
projects that may result from this rule.
Table 9: Primary Approach (CISA) Estimated Costs over the 60-Year Period of Analysis (Low Estimate, 2022$)

Year
1
2
3
4
5
6
7
8
9
10
11-60*
Total
Annualized

$1,442,218
$701,177
$701,177
$701,177
$701,177
$701,177
$701,177
$701,177
$701,177
$701,177

Elevation and
Floodproofing
Costs
$14,921,562
$14,921,562
$14,921,562
$14,921,562
$14,921,562
$14,921,562
$14,921,562
$14,921,562
$14,921,562
$14,921,562

$0

$0

FEMA Admin
Costs

$16,363,780
$15,622,739
$15,622,739
$15,622,739
$15,622,739
$15,622,739
$15,622,739
$15,622,739
$15,622,739
$15,622,739

$15,887,165
$14,725,930
$14,297,019
$13,880,601
$13,476,312
$13,083,798
$12,702,716
$12,332,734
$11,973,529
$11,624,785

Annual costs
discounted at
7%
$15,293,252
$13,645,505
$12,752,809
$11,918,513
$11,138,797
$10,410,091
$9,729,057
$9,092,576
$8,497,735
$7,941,808

$0

$0

$0

$133,984,589
$4,841,260

$110,420,143
$7,865,141

Undiscounted
annual costs

Annual costs
discounted at 3%

* After year 10, this final rule will continue to impact FEMA projects funding new construction, substantial
improvements or repairs to fix substantial damage, but FEMA has chosen to limit the analysis to 10 years of affected
structures because FEMA believes the number of structures affected in this 10-year period is enough to provide a

FEMA limited its dollar-valuation to the projects impacted in the first 10 years after the rule’s effective
date. FEMA has considered the resulting costs, benefits, and transfer payments of the final rule on those
projects over a 50-year period, for a total of 60 years. The costs and transfers occur in the first 10 years of
the 60-year period because that is when the initial investment to elevate or floodproof them to meet the
FFRMS requirements takes place. This is an upfront cost that occurs when the project is constructed.
However, the benefits of the final rule are realized over the 50-year useful life of the affected structures.
324 FEMA has created a range for the administrative costs: between if all projects used the FFSST (low
estimate) and if all used the Job Aid (high estimate). FEMA acknowledges that there may be situations
where a combination of the FFSST and Job Aid may be used. However, FEMA was unable to estimate
how many would use the FFSST and how many would use the Job Aid since the FFSST is currently being
improved. In reality, the administrative costs will likely fall somewhere within the low and high estimates.
reasonable estimate of the costs, benefits, and transfers resulting from the final rule. Accordingly, FEMA’s analysis
focuses on the 50-year impacts of the rule on projects that take place in the initial 10-year period, for a total period of
analysis spanning 60 years.
Table 10: Primary Approach (CISA) Estimated Costs over the 60-Year Period of Analysis (High Estimate,
2022$)
Elevation and
Annual costs
FEMA Admin
Undiscounted
Annual costs
Year
Floodproofing
discounted at
Costs
annual costs
discounted at 3%
Costs
7%
1
$1,576,243
$18,985,370
$20,561,613
$19,962,731
$19,216,461
2
$835,202
$18,985,370
$19,820,572
$18,682,790
$17,312,055
3
$835,202
$18,985,370
$19,820,572
$18,138,631
$16,179,491
4
$835,202
$18,985,370
$19,820,572
$17,610,322
$15,121,019
5
$835,202
$18,985,370
$19,820,572
$17,097,400
$14,131,794
6
$835,202
$18,985,370
$19,820,572
$16,599,417
$13,207,284
7
$835,202
$18,985,370
$19,820,572
$16,115,939
$12,343,256
8
$835,202
$18,985,370
$19,820,572
$15,646,543
$11,535,753
9
$835,202
$18,985,370
$19,820,572
$15,190,818
$10,781,078
10
$835,202
$18,985,370
$19,820,572
$14,748,367
$10,075,774
11-60*
$0
$0
$0
$0
$0
Total

$169,792,958

$139,903,965

Annualized
$6,135,122
$9,965,251
* After year 10, the final rule will continue to impact FEMA projects funding new construction, substantial
improvements or repairs to fix substantial damage, but FEMA has chosen to limit the analysis to 10 years of affected
structures because it believes that the number of structures affected in this 10-year period is enough to provide a
reasonable estimate of the costs, benefits, and transfers resulting from the final rule. Accordingly, FEMA’s analysis
focuses on the 50-year impacts of the rule on projects that take place in the initial 10-year period, for a total period of
analysis spanning 60 years.

Total Benefits
FEMA believes that the benefits of the final rule will justify the costs. FEMA has
identified qualitative benefits, including reductions in damage to properties and contents
from future floods, potential lives saved, public health and safety benefits, reduced
recovery time from floods, and increased community resilience to flooding. FEMA has
also analyzed quantified benefits of one additional foot of freeboard for PA projects using
the CISA.
This final rule will result in savings in time and money from a reduced recovery
period after a flood, as well as the increased safety of individuals. Generally, if
properties are protected, there will be less damage, resulting in less recovery time. In
addition, higher elevations will help to protect people, leading to increased safety.
FEMA is unable to quantify these benefits but discusses them qualitatively in the
Regulatory Impact Analysis.

In support of these benefits, FEMA is using the 2022 Benefits Analysis of
Increased Freeboard for Public and Nonresidential Buildings in Riverine and Coastal
Floodplains325 (2022 report) that analyzed potential benefits (such as a reduction in
damages, displacement, and loss of function, from increased flood protection
requirements for public and nonresidential use buildings located in riverine and coastal
SFHAs). This report’s scope included six construction methods in coastal and riverine
areas: Elementary School 1-Story, Hospital 2-3 Stories, Police Station 2-Stories, Office
Building (Business) 1-Story, Office Building (Business) 3-Story, and Office Building
(Government office) 1-Story. The riverine analysis considered locations along 14 rivers,
while the coastal analysis considered 12 different locations along a hypothetical coastal
transect; both only considered scenarios based on future conditions.
Future conditions for the riverine analysis included two climate change scenarios:
the Representative Concentration Pathways (RCP) 4.5 scenario and the RCP 8.5 scenario
that represent various efforts to curb future emissions.326 The study used these two
climate change scenarios to evaluate the amount of increase or decrease in riverine flood
elevations over the next 50 years. For the coastal analysis, the study included the impact
of various sea level rise conditions in areas with wave heights less than 1.5-ft (flood
zones A) that are subject to coastal storm surge. The sea level rise conditions replicated a
2016 evaluation considering 8-, 20-, 39- and 59-inch sea level rises by 2100. FEMA has
evaluated benefits associated with the rule using both RCP 4.5 and 8.5 scenarios, and
three of the four sea level rise conditions: 8-, 39-, and 59-inches.
A Benefits Analysis of Increased Freeboard for Public and Nonresidential Buildings in Riverine and
Coastal Floodplains. FEMA. Draft, July 2022. Available at:
https://www.regulations.gov/document/FEMA-2023-0026-0003. Last accessed: March 22, 2024.
326 Representative Concentration Pathways (RCP) are projected future emissions and concentration
trajectories for climate change models that account for the increase in greenhouse gas, aerosol, and
chemically active gas emissions. According to the Environmental Protection Agency, they define RCP as
the following. RCP 4.5: This scenario assumes a stabilization in GHG emissions shortly after 2100. RCP
8.5: This scenario is characterized by increasing GHG emissions over time, and factors in the highest GHG
concentration levels of all the scenarios by 2100.
Changes Over Time. EPA. Available at: https://www.epa.gov/enviroatlas/changes-over-time. Last
accessed: December 1, 2023.
The 2022 report used FEMA’s BCA Toolkit to calculate benefits for each year
between 2023 and 2072 and then used these projections to calculate the present value
benefits for each scenario.327 The Toolkit used standard depth-damage functions (curves)
to estimate damages from inundation and to calculate the benefits of mitigation that
included avoided physical damage, avoided displacement (costs incurred while staying in
a temporary location following an event), and avoided loss of function (the economic
impact to a community due to a lack of critical services). The study also considered the
potential avoided losses (or benefits) associated with either dry floodproofing or
elevation of nonresidential and public use buildings.328 It compared existing freeboard
requirements against one additional foot of freeboard; that is, the study evaluated the
benefits of elevating or floodproofing to the BFE+2 from a current assumed height of
BFE+1 for non-critical actions and to BFE+3 from a current assumed height of BFE+2
for critical actions.
According to this report, for critical facilities in coastal SFHAs, such as police
stations and hospitals, inclusion of one additional foot of freeboard will provide increased
protection and continuity of operations and result in a quantifiable benefit. Elevating
buildings would help to maintain community resiliency farther into the future. The
riverine analysis indicated that despite the large variation in the flood data for the 14
sites, inclusion of one additional foot of freeboard would result in quantifiable average
benefits. Critical actions and schools had the highest benefits across various riverine
locations.
FEMA has used this study to estimate the benefits of an additional foot of
freeboard for non-residential PA projects. FEMA was unable to use the benefits study to

FEMA developed the BCA Toolkit to perform an analysis of cost-effectiveness of mitigation projects.
The BCA Toolkit uses Office of Management and Budget cost-effectiveness guidelines and FEMAapproved methodologies and tools to complete a benefit-cost analysis. The tool can be found here:
https://www.fema.gov/grants/tools/benefit-cost-analysis#toolkit
328 2016 Evaluation of the Benefits of Freeboard for Public and Nonresidential Buildings in Coastal Areas.
https://www.regulations.gov/document/FEMA-2015-0006-0379. Page 4.
estimate the benefits for HMA and IA projects, since HMA data cannot be broken out by
building types and IA data is limited to residential-related projects.
For FEMA’s primary estimate, FEMA used 59 inches of SLR due to it being the
closest SLR option to the vertical rise in FEMA’s +5-ft assumption for CISA. CISA is
the preferred approach for the FFRMS if the data are available. Since 5 feet is equivalent
to 60 inches (5 × 12 inches per foot), 59-inch SLR is the closest SLR option that FEMA
had available for this portion of the analysis. Using CISA for all PA Category E projects
that are subject to the FFRMS, with the assumption that there would be a 59-inch SLR,
FEMA estimates that the present value benefits of one additional foot of freeboard for the
50-year useful life of 1,154 PA Category E projects undertaken during the first 10 years
after the rule’s effective date will be between $56.1 million and $46.2 million (low
estimate), discounted at 3 and 7 percent respectively, with a 60-year annualized benefit of
$2.0 million and $3.3 million, at 3 and 7 percent (See Table 11) and between $66.1
million and $54.4 million (high estimate), discounted at 3 and 7 percent respectively,
with a 60-year annualized benefit of $2.4 million and $3.9 million, at 3 and 7 percent.
(See Table 12).
Tables 11 and 12 show the number of projects constructed each year (column 2),
the present value of the benefits as of the year in which they were constructed (column
3), and the present value of the benefits as of the beginning of Year 1, using a 3 percent
and 7 percent discount rate (columns 3 and 4, respectively). For example, the benefits
shown in Year 1 represent the present value of the benefits for the 115 Category E
projects constructed in Year 1 over their 50-year useful life (i.e., in Years 1-50 of the
analysis). The analysis does not account for any benefits for Year 1 projects after their
50-year useful life. The benefits shown in Year 10 represent the present value of the
benefits for projects constructed in Year 10 over their 50-year useful life, (i.e., in Years
11-60 of the analysis).

Table 11: Primary Approach (CISA) Estimated 50-Year Benefits for PA Category E Projects Undertaken
During Years 1-10 (Low Estimate, 2022$)
Number of PA
Total 50-Year Benefit for Projects
Year
Discounted 3%
Discounted 7%
Category E Projects
Constructed in Each Year*
1
115
$6,581,729
$6,390,028
$6,151,149
2
115
$6,581,729
$6,203,911
$5,748,737
3
115
$6,581,729
$6,023,214
$5,372,651
4
115
$6,581,729
$5,847,781
$5,021,170
5
115
$6,581,729
$5,677,457
$4,692,682
6
115
$6,581,729
$5,512,094
$4,385,684
7
115
$6,581,729
$5,351,548
$4,098,770
8
115
$6,581,729
$5,195,678
$3,830,626
9
115
$6,581,729
$5,044,347
$3,580,024
10
115
$6,581,729
$4,897,424
$3,345,817
60-Year Total*
$56,143,482
$46,227,310
Annualized**
$2,028,630
$3,292,735
* The benefits in this column represent the present value of the benefits for structures constructed in that
year over their 50-year useful life, as of the year in which they were constructed.
** The total benefits represent the total present value of benefits as of the beginning of Year 1.
Table 12: Primary Approach (CISA) Estimated 50-Year Benefits for PA Category E Projects Undertaken
During Years 1-10 (High Estimate, 2022$)
Number of PA
Total 50-Year Benefit for Projects
Year
Discounted 3%
Discounted 7%
Category E Projects
Constructed in Each Year*
1
115
$7,750,655
$7,524,908
$7,243,603
2
115
$7,750,655
$7,305,736
$6,769,722
3
115
$7,750,655
$7,092,947
$6,326,843
4
115
$7,750,655
$6,886,357
$5,912,938
5
115
$7,750,655
$6,685,783
$5,526,110
6
115
$7,750,655
$6,491,052
$5,164,589
7
115
$7,750,655
$6,301,992
$4,826,718
8
115
$7,750,655
$6,118,439
$4,510,952
9
115
$7,750,655
$5,940,232
$4,215,843
10
115
$7,750,655
$5,767,215
$3,940,040
60-Year Total*
$66,114,661
$54,437,358
Annualized**
$2,388,918
$3,877,531
* The benefits in this column represent the present value of the benefits for structures constructed in that
year over their 50-year useful life, as of the year in which they were constructed.
** Annualized over the 60-year period of analysis.

Total Transfer Payments
Because the cost to implement the FFRMS mitigation measures will be shared
between FEMA and grant recipients according to the statutory cost share, there are also
important distributional impacts. The majority of elevation and floodproofing costs will
be borne by FEMA through additional grants (a transfer from FEMA to grant recipients).
Grant recipients will bear the remaining cost. The below section shows the additional
transfers from FEMA to grant recipients. Using CISA as the primary approach, FEMA
estimates that this final rule will affect 13,476 structures in the first 10 years resulting in
an increase in transfer payments (i.e., grants) over the 60-year period of analysis.

FEMA’s low estimate of the increase in transfer payments is between $104.7 million and
$86.2 million, with a 60-year transfer between $3.8 million and $6.1 million annually, at
3 and 7 percent respectively (see Table 13). FEMA’s high estimate of the increase in
transfer payments is between $134.2 million and $110.5 million, with a 60-year transfer
between $4.8 million and $7.9 million annually, at 3 and 7 percent discount rates,
respectively (see Table 14).
Table 13: Primary Approach (CISA) Estimated Transfers over the 60-Year Period of Analysis (Low Estimate,
2022$)
Transfers from
Year
Total transfers discounted at 3% Total transfers discounted at 7%
FEMA to Recipients
1
$12,276,633
$11,919,061
$11,473,489
2
$12,276,633
$11,571,904
$10,722,887
3
$12,276,633
$11,234,858
$10,021,389
4
$12,276,633
$10,907,629
$9,365,785
5
$12,276,633
$10,589,931
$8,753,070
6
$12,276,633
$10,281,487
$8,180,439
7
$12,276,633
$9,982,026
$7,645,270
8
$12,276,633
$9,691,287
$7,145,112
9
$12,276,633
$9,409,017
$6,677,675
10
$12,276,633
$9,134,968
$6,240,818
11-60*
$0
$0
$0
Total
$104,722,168
$86,225,934
Annualized
$3,783,922
$6,141,806
* After year 10, the final rule will continue to impact FEMA projects funding new construction, substantial
improvements or repairs to fix substantial damage, but FEMA has chosen to limit the analysis to 10 years of
affected structures because FEMA believes the number of structures affected in this 10-year period is enough
to provide a reasonable estimate of the costs, benefits, and transfers resulting from the final rule. Accordingly,
FEMA’s analysis focuses on the 50-year impacts of the rule on projects that take place in the initial 10-year
period, for a total period of analysis spanning 60 years.
Table 14: Primary Approach (CISA) Estimated Transfers over the 60-Year Period of Analysis (High Estimate,
2022$)
Transfers from FEMA to
Total transfers discounted at
Total Transfers discounted
Year
Recipients
3%
at 7%
1
$15,730,870
$15,272,689
$14,701,748
2
$15,730,870
$14,827,854
$13,739,951
3
$15,730,870
$14,395,974
$12,841,076
4
$15,730,870
$13,976,674
$12,001,005
5
$15,730,870
$13,569,587
$11,215,893
6
$15,730,870
$13,174,356
$10,482,143
7
$15,730,870
$12,790,637
$9,796,395
8
$15,730,870
$12,418,094
$9,155,510
9
$15,730,870
$12,056,402
$8,556,551
10
$15,730,870
$11,705,245
$7,996,777
11-60*
$0
$0
$0
Total
$134,187,512
$110,487,049
Annualized
$4,848,592
$7,869,907
* After year 10, the final rule will continue to impact FEMA projects funding new construction, substantial
improvements or repairs to fix substantial damage, but FEMA has chosen to limit the analysis to 10 years of
affected structures because FEMA believes the number of structures affected in this 10-year period is enough to
provide a reasonable estimate of the costs, benefits, and transfers resulting from the final rule. Accordingly,
FEMA’s analysis focuses on the 50-year impacts of the rule on projects that take place in the initial 10-year
period, for a total period of analysis spanning 60 years.

In Tables 15 and 16, FEMA presents the cost, transfer payments, and benefit
estimates by FFRMS approach. FEMA also presents estimates of costs, transfers, and
benefits by grant program for CISA, FEMA’s primary approach. The administrative cost
estimate is not broken down by grant program because much of the cost will exist
regardless of the program. Quantitative estimates of benefits are only available for
projects under PA category E (Public Buildings). Due to the highly project-specific
nature of facilities projects, and the numerous options for making them resilient, FEMA
cannot estimate the costs of improving flood resiliency of facilities.329 Tables 15 and 16
show that the total 60-year benefits for non-residential PA Category E projects
constructed in the first 10 years is $54.4 million (7 percent, high). This benefit is for
adding one foot of freeboard, assuming a 59-inch SLR. Although the cost for residential
and non-residential PA Category E projects is $133.3 million (7 percent, high), this cost
represents 5 feet of freeboard (FEMA’s assumption for CISA).330 FEMA does not have
data to quantify the benefits of additional freeboard, and thus the quantified benefits
represent only a portion of the increased risk reduction that will be achieved through this
rule. Ensuring projects are built to the height necessary to avoid additional loss scenarios
will provide additional unquantified benefits of avoided damages to the structure,
decreased cleanup time and disruption to the community, and increased public health and
safety. Moreover, FEMA’s use of CISA as its preferred approach will use the best
available and actionable scientific data to tailor future flooding risk to each project,
ensuring that projects are built only to the height necessary and thus maximizing net
benefits. Accordingly, FEMA believes the benefits of the rule – quantified and
unquantified – will justify its costs.

Category E projects are public buildings and contents. See “Public Assistance Program and Policy
Guide” Page 51, at https://www.fema.gov/sites/default/files/documents/fema_pappg-v4-updatedlinks_policy_6-1-2020.pdf.
330 Costs for the FVA may be a better comparison because they represent 2 or 3 feet of freeboard,
depending on criticality. However, the number of projects using FVA and CISA differ, making such a
comparison difficult.
Table 15: Summary of 60-Year Costs, Transfers, and Benefits by Approach and Program for Affected Projects
in Years 1-10 (Low Estimate, 2022$)

Costs331
CISA (primary)
(+5-ft)
PA
IA
HMA
FVA
0.2PFA
FEMA Admin
Not Quantified

Undiscounted

3% Discount Rate
Present Value Annualized

7% Discount Rate
Present Value
Annualized

$149,215,620

$127,283,949

$104,802,806

$4,599,146

$7,465,023

$104,341,798
$89,005,671
$3,216,038
$73,285,315
$5,220,056
$1,681,740
$1,434,557
$51,835
$1,181,184
$84,135
$43,192,063
$36,843,704
$1,331,272
$30,336,295
$2,160,831
$756,606,840 $645,400,983 $23,320,247
$531,408,984
$37,851,850
$43,407,580
$37,027,545
$1,337,915
$30,487,667
$2,171,613
$7,752,811
$6,700,641
$242,114
$5,617,336
$400,118
Not Estimated: Increased resiliency standard for approximately 26,985 facility
projects over 10 years, Additional costs for Adding Requirements to Buildings
with Basements, Diversion of Projects Out of the Floodplain, Lifecycle
maintenance costs for floodproofing, and Project Delays and Forgone Projects
Transfer Payments from FEMA to Grant Recipients
CISA Total
(primary) (+5ft)
$122,766,330 $104,722,168
$3,783,922
$86,225,934
$6,141,806
PA
$88,690,530
$75,654,821
$2,733,633
$62,292,516
$4,437,048
IA
$1,681,740
$1,434,557
$51,835
$1,181,184
$84,135
HMA
$32,394,060
$27,632,790
$998,454
$22,752,232
$1,620,624
FVA Total
$50,748,250
$43,289,287
$1,564,170
$35,643,448
$2,538,855
0.2PFA Total
$35,173,090
$30,003,358
$1,084,110
$24,704,108
$1,759,654
Benefits
PA (CISA,
$65,817,290
$56,143,482
$2,028,630
$46,227,310
$3,292,735
primary) (+1-ft)
Not Quantified
Not Estimated: Damage Avoidance for approximately 12,322 IA and HMA
structure projects and 26,985 PA and HMA facility projects over 10 years,
Potential Lives Saved, Increased Public Health and Safety, Decreased Cleanup
Time, Protection of Critical Facilities, Reduction of Personal and Community
Impacts

To obtain the total costs as in Section 7.12, add each individual approach to the FEMA admin cost. For
example, CISA + FEMA admin = total CISA cost
Table 16: Summary of 60-Year Costs, Transfers, and Benefits by Approach and Program for Affected Projects
in Years 1-10 (High Estimate, 2022$)

3% Discount Rate
Costs332
CISA (primary)
(+5-ft)
PA
IA
HMA
FVA
0.2PFA
FEMA Admin
Not Quantified

Undiscount
ed
$189,853,70
0
$144,979,87
8
$1,681,740

7% Discount Rate

Present Value

Annualize
Present Annualized
d
Value
$5,851,69 $133,345,29
$161,949,055
$9,498,082
9
2
$4,468,59 $101,827,80
$123,670,781
$7,253,115
1
1
$1,434,557
$51,835
$1,181,184
$84,135
$1,331,27
$43,192,063
$36,843,704
$30,336,295
$2,160,831
2
$2,297,94
$74,555,130
$63,597,039
$52,364,403
$3,729,876
9
$1,574,45
$51,081,940
$43,573,931
$35,877,816
$2,555,549
5
$9,093,061
$7,843,901
$283,423
$6,558,671
$467,169
Not Estimated: Increased resiliency standard for approximately 26,985 facility
projects over 10 years, Additional costs for Adding Requirements to Buildings with
Basements, Diversion of Projects Out of the Floodplain, Lifecycle maintenance costs
for floodproofing, and Project Delays and Forgone Projects

Transfer Payments from FEMA to Grant Recipients

CISA Total
(primary) (+5ft)
PA
IA
HMA
FVA Total
0.2PFA Total
Benefits
PA (CISA,
primary) (+1ft)
Not Quantified

$157,308,70
0
$123,232,90
0
$1,681,740
$32,394,060

$134,187,512
$105,120,163
$1,434,557
$27,632,790

$61,609,580

$52,554,220

$41,696,300

$35,567,787

$77,506,550

$66,114,661

$4,848,59
2
$3,798,30
3
$51,835
$998,454
$1,898,93
9
$1,285,16
9
$2,388,91
$110,487,04
$7,869,907

$86,553,631
$1,181,184
$22,752,232

$6,165,148
$84,135
$1,620,624

$43,271,991

$3,082,230

$29,285,736

$2,086,000

$54,437,358

$3,877,531

Not Estimated: Damage Avoidance for approximately 12,322 IA and HMA structure
projects and 26,985 PA and HMA facility projects over 10 years, Potential Lives
Saved, Increased Public Health and Safety, Decreased Cleanup Time, Protection of
Critical Facilities, Reduction of Personal and Community Impacts

In Table 17, FEMA presents the OMB A-4 Accounting Statement. FEMA’s analysis
presents a range for costs and transfers of +5-ft of freeboard, and the benefits of +1-ft of
freeboard. The range is due to uncertainty about whether new construction PA Category
E projects will choose to floodproof or elevate.333 Accordingly, FEMA’s PA minimum
estimate assumes all new construction projects choose to floodproof and the maximum

To obtain the total costs as in Section 7.12, add each individual approach to the FEMA admin cost. For
example, CISA + FEMA admin = total CISA cost
333 Because it is more expensive to elevate substantial repair projects than to floodproof them, FEMA
assumes that all substantial repair projects will choose to floodproof.
assumes all new construction projects choose to elevate. FEMA’s analysis for HMA and
IA projects do not have a range. Table ES-14 shows the primary costs and transfers
using the CISA approach only and the average of the ranges. FEMA has calculated the
total benefits using the minimum and maximum estimates of PA benefits. FEMA has
calculated the primary benefit estimates using the CISA approach with a 59-inch SLR
and then taking the average of this range.

Table 17: A-4 Accounting Statement: Benefits, Costs and Transfers from 2023-2082 for Projects Undertaken in 2023 – 2032 (2022$)

CATEGORY
BENEFITS*
Annualized Monetized
benefits
Annualized quantified,
but unmonetized
benefits

PRIMARY
ESTIMATE334

MINIMUM
ESTIMATE

MAXIMUM
ESTIMATE

SOURCE
CITATION (RIA,
preamble, etc.)

3 percent: $2,208,774
7 percent: $3,585,133

3 percent: $2,028,630
7 percent: $3,292,735

3 percent: $2,388,918
7 percent: $3,877,531

RIA Section 7.14.2

N/A

N/A

N/A

N/A

•
Qualitative
(unquantified) benefits

Reduction in damage to properties and contents from future floods
for approximately 12,322 IA and HMA structure projects and
26,985 PA and HMA facility projects in Years 1-10, potential lives
saved, public health and safety benefits, reduced recovery time
from floods, and increased community resilience to flooding.

RIA Section 7.14.1
and 6.14.3

COSTS*
Annualized monetized
costs

Qualitative
(unquantified) costs

3 percent:
3 percent:
3 percent:
$5,488,191
$4,841,260
$6,135,122
7 percent:
7 percent:
$8,915,196
$7,865,141
7 percent: $9,965,251
• Increased resiliency standard for approximately 26,985 facility
projects in Years 1-10 years, diversion of projects out of the
floodplain, project delays and forgone projects, lifecycle
maintenance costs for floodproofing, and additional costs for
adding requirements to buildings with basements.

TRANSFERS*
Annualized monetized
transfers grants

3 percent:
$4,316,257

3 percent:
$3,783,922

3 percent:
$4,848,592

7 percent:
$7,005,857

7 percent:
$6,141,806

7 percent:
$7,869,907

from whom to whom?

From FEMA to recipients

Category

Effects
•

Effects on State, Local,
Tribe, and Territory
(SLTT) governments

RIA Sections 7.4, 7.5,
7.6, 7.8, 7.9

RIA Section 7.11

RIA Sections 7.13

Source Citation
(RIA, preamble, etc.)

SLTT grant recipients whose projects are for new construction,
substantial improvement, or to address substantial damage and are
located within the expanded floodplain would have to comply with
the updated FFRMS regulations by elevating or floodproofing
these projects to the new standard. Specific grant programs
include IA, PA, and HMA.

•
•

FEMA has calculated the primary estimates by calculating the average of the minimum and the
maximum estimates for respective each percent. For example, for the primary 3 percent benefits, FEMA
calculated the average for 3 percent discount minimum and 3 percent discount maximum.
RIA

•

•

•

•
Effects on small
entities*
•

•

•

Effects on wages
Effects on growth

In an average year, FFRMS would impact about 1,154 PA
Category E projects. Based on a random sample of 92 projects,
FEMA found that the grant recipients for 47 of the projects met the
definition of a small entity. FEMA estimated that 51 percent (47 ÷
92) of projects, or 504 Category E projects were small entities
under the Regulatory Flexibility Act.
In an average year, FFRMS would impact about 63 HMA
elevation or floodproofing projects per year. Assuming 51 percent
of HMA grants benefit small entities, FEMA estimated that the
final rule would impact 32 small entities receiving HMA grants
each year.
In an average year, FFRMS would impact about 1,036 PA
Category C facilities. Based on a random sample of 91 projects,
FEMA found that grant recipients for 70 of the projects, or 76.9
percent (70 ÷ 91), were small entities that would meet the
definition of small entities under the Regulatory Flexibility Act.
In an average year, FFRMS would impact about 120 PA Category
D facilities. Based on a random sample of 55 projects, FEMA
found that grant recipients for 37 of the projects, or 67.3 percent
(37 ÷ 55), were small entities that would meet the definition of
small entities under the Regulatory Flexibility Act.
In an average year, FFRMS would impact about 208 PA Category
F facilities. Based on a random sample of 68 projects, FEMA
found that grant recipients for 55 of the projects, or 80.9 percent
(55 ÷ 68), were small entities that would meet the definition of
small entities under the Regulatory Flexibility Act.
In an average year, FFRMS would impact about 314 PA Category
G facilities. Based on a random sample of 76 projects, FEMA
found that grant recipients for 40 of the projects, or 52.6 percent
(40 ÷ 76), were small entities that would meet the definition of
small entities under the Regulatory Flexibility Act.
In an average year, FFRMS would impact about 84 HMA grant
recipients received FEMA funding per year for minor flood
controls and generator projects. Based on a random sample of 46
projects, FEMA found that grant recipients for 19 of the projects,
or 41.3 percent (19 ÷ 46), were small entities that would meet the
definition of small entities under the Regulatory Flexibility Act.
None
None

Final Rule Preamble,
Regulatory Flexibility
Act

N/A
N/A

* FEMA limited its dollar-valuation to the projects impacted in the first 10 years after the rule’s effective date. FEMA
considered the resulting costs, benefits, and transfer payments of the final rule on those projects over a 50-year period,
for a total of 60 years. The costs and transfers occur in the first 10 years of the 60-year period because that is when the
initial investment in those projects takes place to elevate or floodproof them to meet the FFRMS requirements. This is
an upfront cost that occurs when the project is constructed. However, the benefits of the final rule would be realized
over the 50-year useful life of the affected structures.

B. Regulatory Flexibility Act
This section considers the effects that this rule will have on small entities as
required by the Regulatory Flexibility Act (RFA, 5 U.S.C. 601 et seq., Pub. L. 96-354) as
amended by the Small Business Regulatory Enforcement Fairness Act of 1996
(SBREFA). The RFA generally requires an agency to prepare a regulatory flexibility
analysis of any rule subject to notice and comment rulemaking requirements under the

Administrative Procedure Act or any other statute, unless the agency certifies that the rule
will not have a “significant economic impact on a substantial number of small entities.”
5 U.S.C. 605(b). Small entities include small businesses, small organizations, and small
governmental jurisdictions.
FEMA prepared a Final Regulatory Flexibility Analysis (FRFA) for this rule.
This analysis is detailed in this section and represents FEMA’s assessment of the impacts
of this rule on small entities. Section 1 outlines FEMA’s assessment of small entities that
will be affected by the regulations. Section 2 presents FEMA’s analysis and summarizes
the steps taken by FEMA to comply with the FRFA.
1.

Assessment of Small Entities Affected by the Regulations

This rule will affect FEMA grant recipients that receive Federal funds under the
PA, IA, and HMA programs for new construction, substantial improvement to structures,
or to address substantial damage to structures and facilities. Recipients of these grants
are primarily States, Tribal governments, local governmental jurisdictions, and certain
non-profit organizations. FEMA does not provide grants to for-profit businesses.
2.

Analysis and Steps Taken to Comply with the Regulatory Flexibility

Act
The following addresses the below requirements of a FRFA:
(1) a statement of the need for, and objectives of, the rule;
(2) a statement of the significant issues raised by the public comments in response
to the initial regulatory flexibility analysis, a statement of the assessment of the agency of
such issues, and a statement of any changes made in the proposed rule as a result of such
comments;
(3) the response of the agency to any comments filed by the Chief Counsel for
Advocacy of the Small Business Administration in response to the proposed rule, and a

detailed statement of any change made to the proposed rule in the final rule as a result of
the comments;
(4) a description of and an estimate of the number of small entities to which the
rule will apply or an explanation of why no such estimate is available;
(5) a description of the projected reporting, recordkeeping, and other compliance
requirements of the rule, including an estimate of the classes of small entities which will
be subject to the requirement and the type of professional skills necessary for preparation
of the report or record;
(6) a description of the steps the agency has taken to minimize the significant
economic impact on small entities consistent with the stated objectives of applicable
statutes, including a statement of the factual, policy, and legal reasons for selecting the
alternative adopted in the final rule and why each one of the other significant alternatives
to the rule considered by the agency which affect the impact on small entities was
rejected.
2.1 Statement of the need for, and objectives of the rule.
FEMA is responsible for publishing information on floodplain areas and
identifying special hazards. FEMA is also responsible for several grant programs that use
Federal funds to assist in construction or reconstruction following a disaster, as well as
grants for hazard mitigation and recovery. These grants can potentially be used for
locations within a floodplain.
To meet the requirements of section 2(d) of Executive Order 11988, directing
agencies to issue or amend existing regulations and procedures to implement the
Executive Order, FEMA promulgated regulations located at 44 CFR part 9. FEMA is
revising 44 CFR part 9 to reflect the changes to Executive Order 11988 made by
Executive Order 13690.

The objective of the rule is to revise the regulations for locating actions subject to
the FFRMS in an expanded floodplain to reduce the risk of flooding to those projects. In
addition, for actions that are determined to be “critical actions” as defined by the rule, the
rule will impose more stringent elevation and resilience requirements. This is necessary
to protect actions where even a slight chance of flooding is too great.
The rule will also require the use, where possible, of natural features and naturebased approaches when developing alternatives for consideration that will accomplish the
same purpose as a considered action but have less potential to affect or be affected by the
floodplain. Common examples of a nature-based approach will be replacing concrete
drainage systems with natural drainage or covering an area with plants to absorb water
and reduce runoff.
Several programs exist to assist with flood mitigation or recovery efforts after a
flood.335 IA and PA are disaster relief programs and primarily provide assistance after a
disaster. HMA Grants are provided to increase resilience to hazards, and these have been
shown to be very effective. By requiring recipients of FEMA funding to consider an
expanded floodplain and build a higher level of flood resilience into their projects, the
rule will reduce the likelihood of further damage and help prevent the loss of life in future
flooding events. This will compel recipients of Federal funds to build to higher flood
resilience standards and avoid repetitive loss situations.
2.2 Statement of the significant issues raised by the public comments in
response to the Initial Regulatory Flexibility Analysis (IRFA), a statement of the
assessment of the agency of such issues, and a statement of any changes made to the
proposed rule as a result of such comments.

In addition to the FEMA-administered grant programs discussed in this analysis (IA, PA, HMA, and
programs administered by GPD), FEMA also provides flood insurance through the NFIP. FEMA does not
apply 44 CFR Part 9 to non-grant site specific actions under the NFIP.
FEMA did not receive any comments on the IRFA for this rule, and therefore did
not make any changes to this FRFA due to public comments.
2.3 The response of the agency to any comments filed by the Chief Counsel
for Advocacy of the Small Business Administration (SBA) in response to the
proposed rule, and a detailed statement of any change made to the final rule as a
result of the comments.
FEMA did not receive any comments on the proposed rule from the Chief
Counsel for Advocacy of the SBA.
2.4 Description of and an estimate of the number of small entities to which
the rule will apply or an explanation of why no such estimate is available.
This rule will affect certain recipients of FEMA grants. These will primarily be
PA and HMA grant recipients, including States, Tribal governments, local governments,
and certain non-profit organizations. The PA grant recipients will include Categories C,
D, E, F, and G projects; however, FEMA is only able to provide reasonable estimates of
the number of entities and costs associated with Categories E (public buildings) because
Category E is for structures whereas projects funded under the remaining PA categories
are for facilities. Facilities will not be required to floodproof or elevate but will instead
need to be made resilient to the appropriate flood levels, which is highly project-specific
in nature, and the lack of data for such projects makes it exceedingly difficult to estimate
costs. Therefore, FEMA has included only estimates of the number of affected facility
projects but was unable to estimate a corresponding cost. IA and GPD are not discussed
in this analysis. IA provides grants directly to individuals, who are not small entities as
defined in 5 U.S.C. 601(6). FEMA finds that this rule will likely have no effect on GPD
grants because GPD projects are not typically substantial improvement or new
construction.

FEMA estimates that the FFRMS requirements will expand the floodplain
between 5 percent and 43 percent based on a study336 conducted in 800 square miles of
coastal and riverine areas representative of places where the FFRMS will apply. FEMA
developed floodplain expansion estimates for two distinct areas of the country: coastal
and riverine. The first estimate was for coastal areas where FEMA anticipates
implementing the CISA approach using currently-actionable sea level rise data. The
second estimate was the area that represented the rest of the country, where 0.2PFA or
FVA approaches will likely be applied. A total of 400 square miles of mapped flood
zones were used as the baseline estimate for each of the two areas of the country. FEMA
selected a random sample of 40 coastal and riverine areas representative of the areas
where the FFRMS will apply, with at least 10 square miles in each sampled area to
ensure varying topography was captured. FEMA calculated the floodplain expansion in
each sample at various levels of freeboard so that there was a total of 400 square miles of
expansion information for each area.
FEMA selected the CISA as the primary approach for evaluating the impacts of
this final rule, since it is the preferred approach and is designed to meet current and future
estimates of flood risks unique to the location and thus provide the best overall resilience,
cost effectiveness, and equity. FEMA does not have data detailed enough to estimate the
average CISA level within the United States for this analysis. Instead, FEMA assumes
CISA values will range from 1- to 10-ft of freeboard, based on the anticipated
interagency tools that are currently in development. FEMA anticipates applying the CISA
in those rounded amounts as “climate-informed freeboard.” The 10-foot ceiling will
account for the highest levels of anticipated sea level rise along the Gulf and Atlantic
coasts. Depending on location, under the CISA, some places may be required to elevate
or floodproof to +1-ft above the 1 percent annual chance plain, while other places may be

This report is available at regulations.gov under docket ID FEMA-2023-0026.

required to use +10-ft above the 1 percent annual chance plain. However, FEMA does
not have available data or research to estimate what the required levels or how many
structures will be subject to the requirements. For analysis purposes, FEMA has
calculated the expanded floodplain using the mid-point (rounded down), +5-ft CISA
level, which FEMA estimates will expand the floodplain by 26 percent.
FEMA considered using the minimum and maximum levels, but the minimum
and maximum levels will not reflect the impacts of the rule accurately. FEMA did not
use the minimum level for this approach because it will reflect a large number of
structures that were not elevated or floodproofed to a high enough standard, when the
rule may actually require them to be subject to a higher standard. If FEMA modeled all
structures at the minimum standard, the costs would be underestimated compared to the
actual impact of the rule. The benefits of protecting the structures from flood will also be
underestimated because at the minimum level, many structures will be left vulnerable to
devastating flood damage. Likewise, FEMA did not use the maximum level because it
will reflect a large number of structures elevated or floodproofed to a standard too high
compared to what the rule may require. If FEMA modeled all structures at the maximum
standard, the costs would be overestimated compared to the actual impact. The benefits
of protecting the structures from flood could potentially be overestimated as well, and not
reflect the actual impact of the rule.
PA provides grants to States, Tribal governments, local governments and certain
non-profit organizations for rebuilding, replacement, or repair of public and non-profit
facilities damaged by disasters. Where such rebuilding, replacement, or repair involves
new construction, substantial improvement, and repair of substantial damage of structures
in the expanded FFRMS floodplain, PA recipients will incur additional costs to comply
with elevation and floodproofing requirements. From 2013-2022, 916 individual PA
Category E grant recipients received FEMA funding for substantial improvement

floodproofing337 or new construction. Under the CISA, with the 26 percent expansion of
the floodplain, an additional 238 PA Category E projects (916 x 26 percent), for a total of
1,154 (916 + 238) projects, will be located in the 1 percent annual chance floodplain or
expanded FFRMS floodplain over the 10-year period. FEMA randomly sampled 92
projects.338 Of the 92 projects, 47 projects, or 51 percent (47 ÷ 92), meet the definition of
small entities under the Regulatory Flexibility Act.
HMA provides mitigation grants to States, Tribal governments, local
governments, and certain non-profit organizations to, among other things, relocate
property outside of the floodplain, or to elevate or floodproof structures above the flood
level. FEMA will apply the FFRMS to all actions subject to the FFRMS, and all
structure elevation, mitigation reconstruction, and dry floodproofing projects. As noted in
the Regulatory Impact Analysis, FEMA funded an average of about 50 HMA elevation,
mitigation reconstruction, and floodproofing structure projects per year from
2020-2022.339 Unlike PA grants, most HMA grants are for projects located in the
floodplain, so for this analysis, FEMA assumes that all HMA elevation, mitigation
reconstruction, and dry floodproofing projects are in the floodplain. FEMA cannot
estimate what projects might be considered actions subject to the FFRMS in addition to
structure elevation, mitigation reconstruction, and dry floodproofing projects because
HMA data does not distinguish whether projects are considered new construction,
substantial improvement, or repairs to address substantial damage. However, structure

The cost of elevating an existing structure is significantly higher than the cost of retrofitting the structure
to be floodproofed, so FEMA assumed that substantial improvement projects would elect to floodproof
rather than elevate.
338 The population of PA Category E projects includes all “Public Buildings” grants from 2013-2022 that
received substantial improvement floodproofing or new construction funding. Because of the large
population, FEMA used Slovin’s formula and a 90 percent confidence interval to determine the sample
size. Slovin’s formula: n = N/(1+N*e^2). Therefore, 1,154/ (1 + 1,154 x 0.1^2) = 92 (rounded).
339 FEMA was unable to obtain 10-years of historical data from 2013-2022 for HMA due to changes within
the program’s database. Therefore, FEMA used the best available data for years 2010 through 2019 instead.
elevation, mitigation reconstruction, and dry floodproofing are the primary HMA projects
relating to flood mitigation.340
With the 26 percent expansion of the floodplain, an additional 13 HMA projects
per year (50 x 26 percent), for a total of 63 (50 + 13) projects, will be located in the 1
percent annual chance floodplain or expanded FFRMS floodplain. Assuming 51
percent341 of HMA grant recipients are small entities, approximately 32 (63 projects x 51
percent) small entities receiving HMA grants will be affected per year.
Facilities will not be required to floodproof or elevate but will instead need to be
made resilient to the appropriate FFRMS floodplain. Resilience measures for facilities
are highly project-specific, and FEMA lacks data for such projects, making it exceedingly
difficult to estimate costs. FEMA could not estimate the cost of this rule on small entities
for facilities. However, FEMA conducted an analysis to estimate the number of small
entities for affected facility projects based on historical data.
In an average year, FFRMS will impact about 1,036 PA Category C facilities.
Based on a random sample of 91 projects, 342 FEMA found that grant recipients for 71 of
the projects, or 76.9 percent (70 ÷ 91), met the definition of small entities under the
Regulatory Flexibility Act.

The other project type related to flood mitigation is acquisition. Generally, acquisition projects are for
open space purposes and restore the natural and beneficial functions of the floodplain. Property
acquisitions that result in relocated structures would be subject to FFRMS elevation and floodproofing
requirements if the structure is relocated within the FFRMS floodplain. HMA data does not break out
relocation costs from acquisition costs, so FEMA is unable to estimate additional relocation expenses for
acquisition projects.
341 In FEMA’s dataset, HMA recipients only included project titles and not the name of the grantee. This
prevented FEMA from determining if a grant recipient was a small entity. Since PA and HMA provide
funding to similar entities (States, Tribal governments, local governments, and certain non-profit
organizations) for disaster related activity, FEMA used the percentages of small entity grant recipients
found in PA Category E as a proxy for HMA small entities.
342 Because of the large population, FEMA used Slovin’s formula and a 90 percent confidence interval to
determine the sample size. Slovin’s formula: n = N/(1+N*e^2). Therefore, 1,036 / (1 + 1,036 x 0.1^2) =
91 (rounded).
In an average year, FFRMS will impact about 120 PA Category D facilities.
Based on a random sample of 55 projects, 343 FEMA found that grant recipients for 37 of
the projects, or 67.3 percent (37 ÷ 55), met the definition of small entities under the
Regulatory Flexibility Act.
In an average year, FFRMS will impact about 208 PA Category F facilities.
Based on a random sample of 68 projects, 344 FEMA found that grant recipients for 55 of
the projects, or 80.9 percent (55 ÷ 68), met the definition of small entities under the
Regulatory Flexibility Act.
In an average year, FFRMS will impact about 314 PA Category G facilities.
Based on a random sample of 76 projects, 345 FEMA found that grant recipients for 40 of
the projects, or 52.6 percent (40÷ 76), met the definition of small entities under the
Regulatory Flexibility Act.
In an average year, FFRMS will impact about 84 HMA grant recipients that
received FEMA funding per year for minor flood controls and generator projects. Based
on a random sample of 46 projects, 346 FEMA found that grant recipients for 19 of the
projects, or 41.3 percent (19 ÷ 46), were small entities under the definition of small
entities under the Regulatory Flexibility Act.
2.5 Description of the projected reporting, recordkeeping and other
compliance requirements of the rule, including an estimate of the classes of small

Because of the large population, FEMA used Slovin’s formula and a 90 percent confidence interval to
determine the sample size. Slovin’s formula: n = N/(1+N*e^2). Therefore, 120/ (1 + 120 x 0.1^2) = 55
(rounded).
344 Because of the large population, FEMA used Slovin’s formula and a 90 percent confidence interval to
determine the sample size. Slovin’s formula: n = N/(1+N*e^2). Therefore, 208/ (1 + 208 x 0.1^2) = 68
(rounded).
345 Because of the large population, FEMA used Slovin’s formula and a 90 percent confidence interval to
determine the sample size. Slovin’s formula: n = N/(1+N*e^2). Therefore, 314/ (1 + 314 x 0.1^2) = 76
(rounded).
346 Because of the large population, FEMA used Slovin’s formula and a 90 percent confidence interval to
determine the sample size. Slovin’s formula: n = N/(1+N*e^2). Therefore, 84 / (1 + 84 x 0.1^2) = 46
(rounded).
entities which will be subject to the requirement and the type of professional skills
necessary for preparation of the report or record.
FEMA will not be changing the application process for its grant programs. The
majority of the costs for the increased elevation or floodproofing requirements of
structures in the FFRMS floodplain will be funded by FEMA through several grant
programs. Small entities, like all entities, will be subject to additional costs not covered
by these grants for the floodproofing, elevation of structures, and flood resilience
measures required by the rule. For the purposes of this analysis, and based on historical
data, FEMA presents the costs such that all projects will choose to elevate because of the
additional level of safety that elevation provides over floodproofing and a historically
higher number of HMA projects that involved elevation as opposed to floodproofing.347
FEMA uses an NFIP report to estimate the cost of the elevation requirements.348 The
report provides estimates for the cost of elevating structures as a percentage of total
construction cost.
The cost of elevating an existing structure is considerably higher than the cost of
retrofitting the structure to be floodproofed. Floodproofing involves sealing off areas
below the flood level so that water cannot enter or altering the use of these areas so that
flood waters may pass through without causing serious damage. Non-residential
structures, where elevation is not feasible, may be floodproofed rather than elevated.
Additionally, floodproofing existing properties may be less costly than elevating an
existing property. So, where a project may floodproof rather than elevate, costs may be
lower for some projects than the costs presented here. However, for existing properties
that choose to elevate rather than floodproof, costs may be higher for some projects than

According to historical HMA data, there have been an average of 63 elevation projects and only 4
floodproofing projects per year.
348 FEMA, “2008 Supplement to the 2006 Evaluation of the National Flood Insurance Program’s Building
Standards” Table 3, available at https://www.fema.gov/sites/default/files/202007/fema_nfip_2008_freeboard_report_0.pdf (last accessed Apr. 29, 2024).
the costs presented here because the NFIP report cost estimates are for when freeboard is
included in the design of a structure. New buildings will be evaluated for both dry
floodproofing (preventing the intrusion of floodwaters into the building by using a system
of waterproofing and shields) and elevation (constructing higher), while existing
buildings will only be evaluated for dry floodproofing.
As established above, FEMA estimates this rule will impact 47 small entity PA
Category E projects annually. Using CISA as the primary approach, FEMA estimates
that the total cost for the elevation and floodproofing requirements of this rule for all PA
Category E projects will be between $10,434,180 ($104,341,798 ÷ 10 years) and
$14,497,988 ($144,979,878 ÷ 10 years) annually for 115 (1,154 PA Total FFRMS action
Category E projects ÷ 10 years) projects annually. Therefore, each project will cost
between $90,732 ($10,434,180 ÷ 115 projects) and $126,078 ($14,497,988 ÷ 115
projects). There is an average of 47 small entity PA projects per year. Small entity
projects will have a total average expected cost between $4,264,404 ($90,732× 47 small
entities PA projects) and $5,925,666 ($126,078 × 47 small entities PA projects) per year.
The historical average cost share for PA Category E projects is 85.0 percent covered by
FEMA and 15.0 percent covered by the recipients, with the majority of recipients
receiving a 75 percent or a 90 percent cost share, depending on the type of disaster
declaration. FEMA estimates that, for PA Category E projects, each small entity will
have an average expected cost (i.e., their portion of the cost share) of between $13,610
($90,732× 15.0 percent) and $18,912 ($126,078 × 15.0 percent) per project.
As established above, FEMA estimates that this rule will affect approximately 32
small HMA grant recipients per year. Using CISA as the primary approach, FEMA
estimates that the total 10-year cost for the elevation and floodproofing requirements of
this rule for HMA projects will be $4,319,206 ($43,192,063 ÷ 10 years) annually for
1,040 (10,398 HMA Total FFRMS action projects ÷ 10 years) projects annually. There is

an average of 32 small entities HMA projects per year. The average HMA project cost is
$4,153 ($4,319,206 ÷ 1,040 HMA projects) per project. The cost-sharing arrangement
for HMA is 75 percent Federal and 25 percent recipient, so HMA recipients will be
required to fund 25 percent of the costs to comply with the requirements of the rule.
Each small entity cost share will have an average expected cost of $1,038 ($4,153 × 25
percent).
Reporting and recordkeeping are not expected to change, with the exception of
minor changes to FEMA’s Mitigation Grant Program/e-Grants system. FEMA will
continue to make the determination of whether a project will take place in an FFRMS
floodplain.
2.6 Description of the steps the agency has taken to minimize the significant
economic impact on small entities consistent with the stated objectives of applicable
statutes, including a statement of the factual, policy, and legal reasons for selecting
the alternative adopted in the final rule and why each one of the other significant
alternatives to the rule considered by the agency which affect the impact on small
entities was rejected.
The standards in this rule represent FEMA’s efforts to implement Executive
Order 11988, as amended, which establishes executive branch-wide policy in this area.
Executive Order 13690 establishes the FFRMS. The policies established in these EOs do
not consider exempting small entities from all or part of the standard; the purpose of the
FFRMS is to ensure that agencies expand management from the current base flood level
to a higher vertical elevation and corresponding horizontal floodplain to address current
and future flood risk and help ensure that projects funded with taxpayer dollars last as
long as intended. Accordingly, the FFRMS will apply to all affected FEMA projects,
including small entities.

As discussed previously, most of the cost of the mitigation standards required by
this rule will be paid by FEMA in the form of additional PA, IA, or HMA grants. Cost
sharing is required for most FEMA grant programs. For PA and HMA, affected small
entities will be required to pay the recipient portion of the cost share, which is 25 percent
in most cases. There are, however, some exceptions and cost shares can be waived or set
at a different level by Congress for PA. FEMA does not have the authority to adjust the
cost share specifically for small entities.
Executive Order 11988, as amended, allows several approaches to determine the
FFRMS floodplain. Section F of this Final Rule, FEMA’s Implementation of Executive
Order 11988, as amended, and FFRMS, describes the FFRMS approaches allowed by
Executive Order 11988, as amended, and FEMA’s considerations when selecting
between the FFRMS approaches. FEMA will, in its accompanying policy, use the CISA
as the preferred approach. FEMA has chosen the CISA as its preferred approach because
it is the only one that uses the best available climate science to help ensure projects are
designed to meet current and future flood risks unique to the location and thus provides
the best overall resilience, cost effectiveness, and equity. Accordingly, FEMA believes
its preferred approach will minimize the risk that affected small entities incur more costs
than necessary because of overprotection or incur preventable costs from future damage
because of under protection.
The CISA establishes the required vertical elevation and corresponding horizontal
floodplain, through the best-available, actionable hydrologic and hydraulic data and
methods that integrate current and future changes in flooding based on climate science, in
accordance with the Revised Guidelines. When such data is not available, this rule and
supplementary policy direct the use of other approaches depending on the criticality of
the action. The rule also requires the use of natural systems, ecosystem processes, and
nature-based approaches where possible.

The FFRMS is a flexible framework to increase resilience against flooding and
help preserve the natural and beneficial values of floodplains. Incorporating the FFRMS
into FEMA regulations will ensure that FEMA expands flood risk management from the
current base flood elevation to a higher vertical elevation and corresponding horizontal
floodplain to address current and future flood risk and helps ensure that projects funded
with taxpayer dollars last as long as intended for all applicants, including small entities.
FEMA considered a more protective approach for critical actions but did not select this
approach. FEMA could have chosen a more protective approach in which it would
determine the elevations established under CISA, FVA, and the 0.2PFA for critical
actions and only allow the applicant to use the highest of the three elevations. This
approach would ensure that applicants were protecting these critical assets at the highest
level. However, this approach may lead to overbuilding and not be the most costeffective or equitable approach for applicants including small entities.
FEMA also considered a more protective approach for all actions but did not
select this approach. FEMA could have required use of the highest standard for all
actions, regardless of criticality. While this approach would ensure that applicants,
including small entities, were building all actions to the most protective level, this
approach would likely lead to overbuilding and not be the most cost-effective, equitable
approach, particularly for non-critical actions.
Small entities affected by the rule, as with any entity affected by the rule, will
have the option to relocate outside of the floodplain. This may be preferable in cases
where property can be obtained and new facilities built for less cost than elevating or
floodproofing to the FFRMS level in the floodplain, and the recipient has the ability to
relocate.

C. Unfunded Mandates Reform Act of 1995
The Unfunded Mandates Reform Act of 1995, 2 U.S.C. 658, 1501-1504, 15311536, 1571, pertains to any rulemaking which is likely to result in the promulgation of
any rule that includes a Federal mandate that may result in the expenditure by State,
local, and Tribal governments, in the aggregate, or by the private sector, of $100 million
(adjusted annually for inflation) or more in any one year. If the rulemaking includes a
Federal mandate, the Act requires an agency to prepare an assessment of the anticipated
costs and benefits of the Federal mandate. The Act also pertains to any regulatory
requirements that might significantly or uniquely affect small governments. Before
establishing any such requirements, an agency must develop a plan allowing for input
from the affected governments regarding the requirements.
FEMA has determined this rulemaking will not result in the expenditure by State,
Territorial, local, and Tribal governments, in the aggregate, nor by the private sector, of
$100,000,000 or more in any one year as a result of a Federal mandate, and it will not
significantly or uniquely affect small governments.349 Therefore, no actions are deemed
necessary under the provisions of the Unfunded Mandates Reform Act of 1995.
D. Paperwork Reduction Act of 1995
As required by the Paperwork Reduction Act of 1995 (PRA), Public Law 104–13,
109 Stat. 163, (May 22, 1995) (44 U.S.C. 3501 et seq.), FEMA may not conduct or
sponsor, and a person is not required to respond to, a collection of information unless the
collection of information displays a valid OMB control number. See 44 U.S.C. 3506,
3507. This final rule calls for no new collections of information under the PRA. The

FEMA expects that increased costs to applicants will be minimal. For example, FEMA found that for a
project with a 75% FEMA/25% applicant cost share, the cost to an applicant to elevate a structure above
the BFE to meet FEMA’s FFRMS requirements using the FVA+2 (1.91 percent of construction cost)
represented less than 0.5% of the total project cost, or an average of an additional $4,775 in applicant cost
share on an original total project cost of $1,000,000. See A Benefit Analysis of Increased Freeboard for
Public and Nonresidential Buildings in Riverine and Coastal Floodplains, posted to the public docket of
this rulemaking at https://www.regulations.gov/document/FEMA-2023-0026-0003.
final rule includes information currently collected by FEMA and approved in OMB
information collections 1660–0072 (FEMA Mitigation Grant Programs) and 1660–0076
(Hazard Mitigation Grant Program (HMGP) Application and Reporting). With respect to
these collections, this final rule will not impose any additional burden and will not
require a change to the forms, the substance of the forms, or the number of recipients who
would submit the forms to FEMA.
E. Privacy Act
Under the Privacy Act of 1974, 5 U.S.C. 552a, an agency must determine whether
implementation of a proposed regulation would result in a system of records. A “record”
is any item, collection, or grouping of information about an individual that is maintained
by an agency, including, but not limited to, his/her education, financial transactions,
medical history, and criminal or employment history and that contains his/her name, or
the identifying number, symbol, or other identifying particular assigned to the individual,
such as a finger or voice print or a photograph. See 5 U.S.C. 552a(a)(4). A “system of
records” is a group of records under the control of an agency from which information is
retrieved by the name of the individual or by some identifying number, symbol, or other
identifying particular assigned to the individual. See 5 U.S.C. 552a(a)(5). An agency
cannot disclose any record, which is contained in a system of records, except by
following specific procedures.
In accordance with DHS policy, FEMA completed a Privacy Threshold Analysis
for this rule. This rule is covered by the following PIAs: DHS/FEMA/PIA–006 FEMA
National Emergency Management Electronic Grants System, DHS/FEMA/PIA–025Hazard Mitigation Grant Program (HMGP) System, DHS/FEMA/PIA–026 Operational
Data Store and Enterprise Data Warehouse PIA, and DHS/FEMA/PIA–031
Authentication and Provisioning Services (APS). No updates to these PIAs are
necessary. Further, this rule is covered under the following System of Records Notices

(SORNs): DHS/FEMA–009 Hazard Mitigation, Disaster Public Assistance, and Disaster
Loan Programs, 79 FR 16015, Mar. 24, 2014; DHS/ALL–004 General Information
Technology Access Account Records System (GITAARS), 77 FR 70792, Nov. 27, 2012;
and DHS/FEMA–008 Disaster Recovery Assistance Files. This final rule will not create
a new system of records, and no updates to these SORNs are necessary.
F. Executive Order 13175, Consultation and Coordination with Indian
Tribal Governments
Executive Order 13175, “Consultation and Coordination With Indian Tribal
Governments,” 65 FR 67249, Nov. 9, 2000, applies to agency regulations that have Tribal
implications, that is, regulations that have substantial direct effects on one or more Indian
Tribes, on the relationship between the Federal Government and Indian Tribes, or on the
distribution of power and responsibilities between the Federal Government and Indian
Tribes. Under this Executive Order, to the extent practicable and permitted by law, no
agency shall promulgate any regulation that has Tribal implications, that imposes
substantial direct compliance costs on Indian Tribal governments, and that is not required
by statute, unless funds necessary to pay the direct costs incurred by the Indian Tribal
government or the Tribe in complying with the regulations are provided by the Federal
Government, or the agency consults with Tribal officials.
FEMA reviewed this final rule under Executive Order 13175 and determined that
this rule would not have a substantial direct effect on one or more Indian Tribes, on the
relationship between the Federal Government and Indian Tribes, or on the distribution of
power and responsibilities between the Federal Government and Indian Tribes.
Part 9 applies to FEMA disaster and non-disaster assistance programs, including
IA, PA, and HMA programs, and grants processed by FEMA’s GPD. Pursuant to section
8 of Executive Order 11988, part 9 does not apply to assistance provided for emergency
work essential to save lives and protect property and public health and safety, performed

pursuant to sections 403 and 502 of the Stafford Act, as amended (42 U.S.C. 5170b and
5192).
Indian Tribes have the same opportunity to participate in FEMA's grant programs
as other eligible participants, and participation is voluntary. The requirements of this rule
do not affect Tribes differently than other grant recipients. FEMA’s edits in this final
rule specifically provide for Indian Tribal government information as a resource when
making the floodplain determination under part 9, consistent with comments received.
G. Executive Order 13132, Federalism
Executive Order 13132, “Federalism,” 64 FR 43255, August 10, 1999, sets forth
principles and criteria that agencies must adhere to in formulating and implementing
policies that have federalism implications, that is, regulations that have “substantial direct
effects on the States, on the relationship between the national government and the States,
or on the distribution of power and responsibilities among the various levels of
government.” Federal agencies must closely examine the statutory authority supporting
any action that would limit the policymaking discretion of the States, and to the extent
practicable, must consult with State and local officials before implementing any such
action.
FEMA has determined this rulemaking does not have a substantial direct effect on
the States, on the relationship between the national government and the States, or on the
distribution of power and responsibilities among the various levels of government, and
therefore does not have federalism implications as defined by the Executive Order.
Part 9 applies to FEMA disaster and non-disaster assistance programs, including
IA, PA, and HMA programs, and grants processed by FEMA’s GPD. Pursuant to section
8 of Executive Order 11988, part 9 does not apply to assistance provided for emergency
work essential to save lives and protect property and public health and safety, performed
pursuant to section 403 and 502 of the Stafford Act, as amended (42 U.S.C. 5170b and

5192). The final rule does not significantly affect the rights, roles, and responsibilities of
States, and involves no preemption of State law, nor does it limit State policymaking
discretion.
H. National Environmental Policy Act of 1969 (NEPA)
Section 102 of NEPA (42 U.S.C. 4321 et seq.) requires Federal agencies to
evaluate the effects of a proposed major Federal action to determine if it will significantly
affect the human environment, consider alternatives to the proposed action, provide
public notice and opportunity for comment, and properly document its analysis. See 40
CFR parts 1501, 1506.6. DHS and its component agencies analyze proposed actions to
determine whether NEPA applies and, if so, what level of analysis and documentation is
required. 40 CFR 1501.3. DHS Directive 023–01, Rev. 01 and DHS Instruction Manual
023–01–001–01, Rev. 01 (Instruction Manual) establish the policies and procedures DHS
and its component agencies use to comply with NEPA and the Council on Environmental
Quality (CEQ) regulations for implementing the procedural requirements of NEPA
codified in 40 CFR parts 1500 through 1508. The CEQ regulations allow Federal
agencies to establish in their NEPA implementing procedures categories of actions
(“categorical exclusions”) that normally do not have a significant effect on the human
environment. Categorically excluded actions do not require preparation of an
environmental assessment or environmental impact statement. 40 CFR 1501.4,
1507.3(e)(2)(ii), 1508.1(d). The Instruction Manual, Appendix A, lists the DHS
categorical exclusions. Under DHS NEPA implementing procedures, for an action to be
categorically excluded, it must satisfy each of the following conditions: (1) the entire
action clearly fits within one or more of the categorical exclusions; (2) the action is not a
piece of a larger action; and (3) no extraordinary circumstances exist that create the
potential for a significant environmental effect.

The final rule updates the Floodplain Management and Protection of Wetland
requirements to adopt the approaches outlined in Executive Order 11988, as amended.
This involves establishing the floodplain, using the vertical elevation and corresponding
horizontal extent, in the 8-step decision-making process FEMA follows in applying
Executive Order 11988, as amended to its actions. FEMA’s final rule amends regulations
codified at 44 CFR part 9 to revise the definition of the floodplain based on the
approaches in Executive Order 11988, as amended, consisting of the Climate-Informed
Science Approach (CISA), the freeboard value approach (FVA), the 0.2-percent-annualchance flood approach (0.2PFA), and any other method identified in updates. The final
rule allows FEMA to select and prioritize among these approaches. The rule revises the
8-step decision-making process to incorporate consideration of the approaches in
determining if the project is in the floodplain. The rule also adds a requirement, where
possible, to use natural systems, ecosystem processes, and nature-based approaches in the
development of alternatives for Federal actions in a floodplain. The result of redefining
the floodplain and applying the approaches outlined in Executive Order 11988, as
amended, may be that structures and facilities determined to be in the floodplain (“the
FFRMS floodplain”) would be designed to be more resilient, and more structures and
facilities—due to the corresponding horizontal expansion of the floodplain—might be
subject to an elevation requirement and/or other mitigation measures. Further, with the
expanded horizontal floodplain, and application of the 8-step decision-making process,
which allows for Federal actions in the floodplain only if there is no practicable
alternative, it is possible some structures or facilities that otherwise would be constructed
in a high-risk flood area, would be constructed elsewhere. This would result in better
protection of people and their property, the floodplain and environment. When placing
the action in the floodplain cannot be avoided, implementing mitigation measures to
actions in the FFRMS floodplain will not only promote public safety and lessen flood

risk, but may also reduce the impact of the action on the floodplain, and thereby
contribute to preserving the natural and beneficial values of the floodplain per the
mandate in E.O. 11988. Similarly, the requirement to use natural systems, ecosystem
processes, and nature-based approaches, where possible, in alternatives to the proposed
action, would contribute to restoring and preserving the natural and beneficial values of
the floodplain.
FEMA has determined NEPA applies to the final rule because it fits the definition
of a “major federal action.” CEQ's NEPA regulations define “major federal action” to
include “new or revised agency rules,” regulations and policies. 40 CFR 1508.1(q)(2).
FEMA analyzed the final rule and finds it meets the three DHS criteria for a
categorical exclusion. FEMA has determined consistent with the first criterion, the rule
clearly fits within the categorical exclusion found at A3 in the DHS Instruction Manual,
Appendix A. Categorical exclusion A3 states “promulgation of rules, issuance of rulings
or interpretations, and the development and publications of policies” may be categorically
excluded if such actions “interpret or amend an existing regulation without changing its
environmental effect.” Instruction Manual, Appendix A, A3(d). The final rule may
result in requiring a structure or facility to have either higher elevation or floodproofing,
or more resilient design. The rule provides for a higher resilience standard than the
existing rule. It is possible the expanded horizontal floodplain may discourage placing a
“Federal action” in the floodplain, as under the 8-step decision-making process, an action
may be located in the floodplain only if there is no practicable alternative. In the event
there is a practicable alternative, and new construction is consequently located outside the
floodplain, the effect of the final rule would be to benefit the environment by contributing
to restoring and preserving the values of the floodplain, as well as enhancing public
safety. FEMA’s environmental and historic preservation review would ensure that the

agency takes into account other potential environmental impacts of locating outside the
floodplain.
If the Federal action must be located in the FFRMS floodplain, that is, there is no
practicable alternative, it will be subject to one of the three approaches or a combination
of them. FEMA's preferred approach is CISA. If the CISA is used, it could result in an
estimated average of 5 feet of additional elevation for a structure (or floodproofing to that
level). FEMA prefers the CISA because it uses the best actionable and available climateinformed science to determine the floodplain is the most effective way to make the action
resilient. If the CISA data is not available and/or actionable, the final rule provides
alternatives for determining the floodplain for critical actions and non-critical actions: for
non-critical actions, the lesser of the freeboard value approach (2 or 3 feet above base
flood elevation) or the 0.2 percent annual flood; and for critical actions, the higher of the
freeboard value approach or 0.2 percent annual flood. Given the CISA or the
combination of approaches may be used, the potential for the change in elevation (or
floodproofing) levels varies. Further, if communities have stricter standards, which they
are required to apply, the communities will still apply that standard, and thus, application
of the FFRMS would not require a change in elevation. If the “Federal action” is
substantial improvement or addresses substantial damage to a structure or facility, it
would involve action in a pre-built environment, with the only change being the structure
or facility might be elevated or floodproofed to the appropriate higher level. If design
rather than elevation, or in addition to elevation, is used to comply with the FFRMS
resilience standard, it is not anticipated it will significantly impact the environment. As
part of implementing the FFRMS resilience standard, nature-based solutions are required
in alternatives to the proposed action, where possible. When applied, they will benefit
the environment by contributing to restoring and preserving the natural and beneficial
values of the floodplain. None of the changes required by any of the combined FFRMS

approaches are anticipated to change the environmental effects of application of the 8step process. Categorical exclusion A3 applies to this regulatory action, however any of
the Federally funded actions to which the FFRMS applies (new construction, substantial
improvement and repair of substantial damage) will undergo separate NEPA analysis.
In addition to and apart from application of the decision process in this final rule,
all Federal actions, new construction, substantial improvement, and actions addressing
substantial damage, are subject to NEPA review and must comply with NEPA
requirements. Each Federal action subject to the FFRMS will be evaluated on an
individual basis under NEPA and related environmental laws, regulations, and executive
orders. The Federal action will not be approved unless it meets all applicable
environmental and historic preservation requirements. Further, the Federal actions
subject to the proposed rule must comply with all applicable floodplain requirements.
See 44 CFR 9.11(d)(6) (referring to requirement to be consistent with the criteria of the
NFIP at 44 CFR part 59 et seq. or any more restrictive Federal, State, or local floodplain
management standard).
FEMA therefore concludes the final rule clearly fits within categorical exclusion
A3. FEMA also finds the final rule meets the second and third DHS criteria for applying
a categorical exclusion. The final rule is not a piece of a larger action, as it will be
implemented independently of other FEMA actions and is a separate action unto itself.
Furthermore, FEMA finds adopting the floodplain management and protection
approaches outlined in Executive Order 11988, as amended, presents no extraordinary
circumstances that increase the potential for significant environmental effects to the
environment. Accordingly, the final rule is categorically excluded, and no further NEPA
analysis or documentation is required.

I. Executive Orders 12898 and 14096 on Environmental Justice
Under Executive Order 12898, “Federal Actions To Address Environmental
Justice in Minority Populations and Low-Income Populations,” (59 FR 7629, Feb. 16,
1994); and Executive Order 14096, “Revitalizing Our Nation's Commitment to
Environmental Justice for All” (88 FR 25251, Apr. 26, 2023), FEMA incorporates
environmental justice into its policies and programs. Executive Order 14096 charges
agencies to make achieving environmental justice part of their missions, consistent with
statutory authority, by identifying, analyzing, and addressing disproportionate and
adverse human health and environmental effects and hazards of Federal activities,
including those related to climate change and cumulative impacts of environmental and
other burdens on communities with environmental justice concerns.
This final rule will not have a disproportionate and adverse human health or
environmental effect on communities with environmental justice concerns. FEMA
addressed specific comments related to environmental justice above.
J. Executive Order 12630, Taking of Private Property
This rule will not affect a taking of private property or otherwise have taking
implications under Executive Order 12630, “Governmental Actions and Interference
With Constitutionally Protected Property Rights” (53 FR 8859, Mar. 18, 1988).
K. Executive Order 12988, Civil Justice Reform
This final rule meets applicable standards in sections 3(a) and 3(b)(2) of
Executive Order 12988, “Civil Justice Reform” (61 FR 4729, Feb. 7, 1996), to minimize
litigation, eliminate ambiguity, and reduce burden.
L. Executive Order 13045, Protection of Children From Environmental Health
Risks and Safety Risks
This final rule will not create environmental health risks or safety risks for
children under Executive Order 13045, “Protection of Children From Environmental
Health Risks and Safety Risks” (62 FR 19885, Apr. 23, 1997).

M. Federal Participation in the Development and Use of Voluntary
Consensus Standards and in Conformity Assessment Activities, OMB
Circular A-119
“Voluntary consensus standards” are standards developed or adopted by voluntary
consensus standards bodies, both domestic and international. These standards include
provisions requiring owners of relevant intellectual property to agree to make that
intellectual property available on a non-discriminatory, royalty-free, or reasonable royalty
basis to all interested parties. OMB Circular A–119 directs agencies to use voluntary
consensus standards in their regulatory actions in lieu of government-unique standards,
except where inconsistent with law or otherwise impractical. The policies in the Circular
are intended to reduce to a minimum the reliance by agencies on government-unique
standards.
Consistent with then-President Obama's Climate Action Plan,350 the National
Security Council staff coordinated an interagency effort to create a new flood risk
reduction standard for Federally funded projects. The views of Governors, mayors, and
other stakeholders were solicited and considered as efforts were made to establish a new
flood risk reduction standard for Federally funded projects. The FFRMS is the result of
these efforts.
N. Congressional Review of Agency Rulemaking
Under the Congressional Review Act (CRA), 5 U.S.C. 801-808, before a rule can
take effect, the Federal agency promulgating the rule must submit to Congress and to the
Government Accountability Office (GAO) a copy of the rule; a concise general statement
relating to the rule, including whether it is a major rule; the proposed effective date of the
rule; a copy of any cost-benefit analysis; descriptions of certain actions under the
Regulatory Flexibility Act and the Unfunded Mandates Reform Act; and any other
The White House, “President Obama's Climate Action Plan, 2nd Anniversary Progress Report—
Continuing to cut carbon, pollution, protect American communities, and lead internationally.” June 2015
found at https://obamawhitehouse.archives.gov/sites/default/files/docs/cap_progress_report_final_w_
cover.pdf (last accessed Jan. 24, 2024).
relevant information or requirements under any other Act and any executive orders.
FEMA has submitted this rule to the Congress and to GAO pursuant to the CRA. OMB
has determined that this rule is not a “major rule” within the meaning of the CRA.
List of Subjects in 44 CFR Part 9
Floodplains; Reporting and recordkeeping requirements.
For the reasons discussed in the preamble, the Federal Emergency Management
Agency (FEMA) is amending 44 CFR part 9 as follows:
PART 9 — FLOODPLAIN MANAGEMENT AND PROTECTION OF
WETLANDS
1. The authority citation for part 9 is revised to read as follows:
Authority: 6 U.S.C. 101 et seq.; 42 U.S.C. 4001 et seq.; 42 U.S.C. 4321 et seq.;
E.O. 11988 of May 24, 1977, 42 FR 26951, 3 CFR, 1977 Comp., p. 117; E.O. 11990 of
May 24, 1977, 42 FR 26961, 3 CFR, 1977 Comp. p. 121; E.O. 13690, 80 FR 6425; E.O.
14030, 86 FR 27967.
2. Revise § 9.1 to read as follows:
§ 9.1 Purpose.
This part sets forth the policy, procedure, and responsibilities to implement and
enforce relevant sections of the National Flood Insurance Act of 1968, as amended, and
the Flood Disaster Protection Act of 1973, as amended, 42 U.S.C. 4001 et seq., the
National Environmental Policy Act of 1969, 42 U.S.C. 4321 et seq., as amended, and
other relevant statutory authorities in conjunction with Executive Order 11988,
Floodplain Management, as amended, and Executive Order 11990, Protection of
Wetlands.
3. Amend § 9.2 by revising paragraph (b) and adding paragraphs (c) and (d) to
read as follows:
§ 9.2 Policy.
*****

(b) The Agency will provide leadership in floodplain management and the
protection of wetlands, informed by the best available and actionable science, to bolster
the resilience of communities and Federal assets against the impacts of flooding, which
are anticipated to increase over time due to the effects of changing conditions which
adversely affect the environment, economic prosperity, public health and safety, and
national security.
(c) The Agency shall integrate the goals of the Orders to the greatest possible
degree into its procedures for implementing the National Environmental Policy Act (42
U.S.C. 4321 et seq.).
(d) The Agency shall:
(1) Minimize the impact of floods on human health, safety, and welfare;
(2) Avoid long- and short-term adverse impacts associated with the occupancy
and modification of floodplains and the destruction and modification of wetlands;
(3) Avoid direct and indirect support of floodplain development and new
construction in wetlands wherever there is a practicable alternative;
(4) Reduce the risk of flood loss;
(5) Promote the use of nonstructural flood protection methods to reduce the risk
of flood loss;
(6) Minimize the destruction, loss, or degradation of wetlands;
(7) Restore and preserve the natural and beneficial values served by floodplains;
(8) Preserve and enhance the natural values of wetlands;
(9) Involve the public throughout the floodplain management and wetlands
protection decision-making process;
(10) Adhere to the objectives of the Unified National Program for Floodplain
Management; and

(11) Improve and coordinate the Agency’s plans, programs, functions, and
resources so that the Nation may attain the widest range of beneficial uses of the
environment without degradation or risk to health and safety.
4. Revise § 9.3 to read as follows:
§ 9.3 Severability.
Any provision of this part held to be invalid or unenforceable as applied to any
action should be construed so as to continue to give the maximum effect to the provision
permitted by law, unless such holding is that the provision of this part is invalid and
unenforceable in all circumstances, in which event the provision should be severable
from the remainder of this subpart and shall not affect the remainder thereof.
5. Amend § 9.4 by:
a. Adding in alphanumeric order definitions for “0.2 percent annual chance flood
elevation”, “0.2 percent annual chance floodplain”, “1 percent annual chance flood
elevation”, and “1 percent annual chance floodplain”;
b. Revising the definitions of “Action” and “Actions Affecting or Affected by
Floodplains or Wetlands”;
c. Adding in alphabetical order a definition for “Action subject to the Federal
Flood Risk Management Standard”;
d. Removing the definitions of “Base Flood” and “Base Floodplain”;
e. Adding in alphabetical order a definition for “Base flood elevation”;
f. Revising the definitions of “Coastal High Hazard Area”, “Critical Action”, and
“Emergency Actions”;
g. Adding in alphabetical order definitions for “Federal Flood Risk Management
Standard (FFRMS)”, “Federal Flood Risk Management Standard (FFRMS) floodplain”,
“Federally funded project”, and “FEMA Resilience”;
h. Removing the definitions of “FIA” and “Five Hundred Year Floodplain”;

i. Revising the definition of “Flood or flooding”;
j. Removing the definitions of “Flood Fringe”, “Flood Hazard Boundary Map
(FHBM)”, “Flood Insurance Rate Map (FIRM)”, and “Flood Insurance Study (FIS)”;
k. Revising the definitions of “Floodplain”, “Functionally Dependent Use”, and
“Mitigation”;
l. Removing the definition of “Mitigation Directorate”;
m. Adding in alphabetical order definitions for “National security”, “Nature-based
approaches”, “Natural and beneficial values of floodplains and wetlands”, and “Natural
features”;
n. Removing the definition of “Natural Values of Floodplains and Wetlands”;
o. Revising the definition of “New Construction”;
p. Removing the definition of “New Construction in Wetlands”;
q. Revising the definitions of “Orders”, “Practicable”, “Regulatory Floodway”,
“Restore”, “Structures”, and “Substantial Improvement”;
r. Adding in alphabetical order a definition for “Support of floodplain and wetland
development”;
s. Removing the definition of “Support”; and
t. Revising the definition of “Wetlands”.
The additions and revisions read as follows:
§ 9.4 Definitions.
0.2 percent annual chance flood elevation means the elevation to which
floodwater is anticipated to rise during the 0.2 percent annual chance flood (also known
as the 500-year flood).
0.2 Percent annual chance floodplain means the area subject to flooding by the
0.2 percent annual chance flood (also known as the 500-year floodplain).

1 percent annual chance flood elevation – see the definition of base flood
elevation in this section.
1 percent annual chance floodplain means the area subject to flooding by the 1
percent annual chance flood (also known as the 100-year floodplain or base floodplain).
Action means
(1) Acquiring, managing, and disposing of Federal lands and facilities;
(2) Providing federally undertaken, financed, or assisted construction and
improvements; and
(3) Conducting Federal activities and programs affecting land use, including, but
not limited to, water and related land resources, planning, regulating, and licensing
activities.
Actions affecting or affected by floodplains or wetlands means actions which have
the potential to result in the long- or short-term impacts associated with:
(1) The occupancy or modification of floodplains, and the direct or indirect
support of floodplain development, or
(2) The destruction and modification of wetlands and the direct or indirect support
of new construction in wetlands.
Action subject to the Federal Flood Risk Management Standard (FFRMS) means
any action where FEMA funds are used for new construction, substantial improvement,
or to address substantial damage to a structure or facility.
* * * * *
Base flood elevation means the elevation to which floodwater is anticipated to rise
during the 1 percent annual chance flood (also known as the base flood or 100-year
flood). The terms “base flood elevation,” “1 percent annual change flood elevation,” and
“100-year flood elevation” are synonymous and are used interchangeably.

Coastal high hazard area means an area of flood hazard extending from offshore
to the inland limit of a primary frontal dune along an open coast and any other area
subject to high velocity wave action from storms or seismic sources.
Critical action means any action for which even a slight chance of flooding is too
great. Critical actions include, but are not limited to, those which create or extend the
useful life of structures or facilities:
(1) Such as those which produce, use or store highly volatile, flammable,
explosive, toxic or water-reactive materials;
(2) Such as hospitals and nursing homes, and housing for the elderly, which are
likely to contain occupants who may not be sufficiently mobile to avoid the loss of life or
injury during flood and storm events;
(3) Such as emergency operation centers, or data storage centers which contain
records or services that may become lost or inoperative during flood and storm events;
and
(4) Such as generating plants, and other principal points of utility lines.
* * * * *
Emergency actions means emergency work essential to save lives and protect
property and public health and safety performed under sections 403 and 502 of the Robert
T. Stafford Disaster Relief and Emergency Assistance Act of 1988 (42 U.S.C. 5170b and
5192).
* * * * *
Federal Flood Risk Management Standard (FFRMS) means the Federal flood risk
management standard to be incorporated into existing processes used to implement
Executive Order 11988, as amended.
Federal Flood Risk Management Standard (FFRMS) floodplain means the
floodplain established using one of the approaches described in § 9.7(c) of this part.

Federally funded project – see the definition of Action subject to the Federal
Flood Risk Management Standard in this section.
FEMA Resilience means the organization within FEMA that includes the Federal
Insurance and Mitigation Administration, the Grants Program Directorate, and the
National Preparedness Directorate.
* * * * *
Flood or flooding means the general and temporary condition of partial or
complete inundation of normally dry land areas from the overflow of inland and/or tidal
waters, and/or the unusual and rapid accumulation of runoff of surface waters from any
source. 0.2 percent annual chance flood means the flood which has a 0.2 percent chance
of being equaled or exceeded in any given year (also known as the 500-year flood). 1
percent annual chance flood means the flood which has a 1 percent chance of being
equaled or exceeded in any given year (also known as the 100-year flood or base flood).
The terms “base flood,” “1 percent annual chance flood,” and “100-year flood” are
synonymous and are used interchangeably.
* * * * *
Floodplain means any land area that is subject to flooding. The term
“floodplain,” by itself, refers to geographic features with undefined boundaries. For the
purposes of this part, the FFRMS floodplain shall be established using one of the
approaches described in § 9.7(c). See the definitions of 0.2 percent annual chance
floodplain, 1 percent annual chance floodplain, and Federal Flood Risk Management
Standard floodplain in this section.
* * * * *
Functionally dependent Use means a use which cannot perform its intended
purpose unless it is located or carried out in close proximity to water.
* * * * *

Mitigation means steps necessary to minimize the potentially adverse effects of
the proposed action, and to restore and preserve the natural and beneficial floodplain
values and to preserve and enhance natural values of wetlands.
* * * * *
National security means:
(1) A condition that is provided by either:
(i) A military or defense advantage over any foreign nation or group of nations;
(ii) A favorable foreign relations position; or
(iii) A defense posture capable of successfully resisting hostile or destructive
action from within or without, overt or covert.
(2) National security encompasses both national defense and foreign relations of
the United States.
Nature-based approaches means the features (sometimes referred to as “green
infrastructure”) designed to mimic natural processes and provide specific services such as
reducing flood risk and/or improving water quality. Nature-based approaches are created
by human design (in concert with and to accommodate natural processes) and generally,
but not always, must be maintained in order to reliably provide the intended level of
service.
Natural and beneficial values of floodplains and wetlands means features or
resources that provide environmental and societal benefits. Water and biological
resources are often referred to as “natural functions of floodplains and wetlands.” These
values include, but are not limited to:
(1) Water resource values (storing and conveying floodwaters, maintaining water
quality, and groundwater recharge);
(2) Living resource values (providing habitats and enhancing biodiversity for fish,
wildlife, and plant resources);

(3) Cultural resource values (providing open space, natural beauty, recreation,
scientific study, historic and archaeological resources, and education; and
(4) Cultivated resource values (creating rich soils for agriculture, aquaculture, and
forestry).
Natural features means characteristics of a particular environment (e.g., barrier
islands, sand dunes, wetlands) that are created by physical, geological, biological, and
chemical processes and exist in dynamic equilibrium. Natural features are self-sustaining
parts of the landscape that require little or no maintenance to continue providing their
ecosystem services (functions).
New construction means the construction of a new structure or facility or the
replacement of a structure or facility which has been totally destroyed. New construction
includes permanent installation of temporary housing units. New construction in
wetlands includes draining, dredging, channelizing, filling, diking, impounding, and
related activities.
* * * * *
Orders means Executive Order 11988, Floodplain Management, as amended, and
Executive Order 11990, Protection of Wetlands.
Practicable means capable of being done within existing constraints. The test of
what is practicable depends on the situation and includes consideration of all pertinent
factors, such as natural environment, social concerns, economic aspects, legal constraints,
and agency authorities.
*****
Regulatory floodway means the area regulated by Federal, State, or local
requirements to provide for the discharge of the base flood so the cumulative rise in the
water surface is no more than a designated amount above the base flood elevation.

Restore means to reestablish a setting or environment in which the natural
functions of the floodplain can operate.
Structure means a walled and roofed building, including a temporary housing unit
(manufactured housing) or a gas or liquid storage tank.
Substantial improvement means any repair, reconstruction or other improvement
of a structure or facility, which has been damaged in excess of, or the cost of which
equals or exceeds, 50 percent of the pre-disaster market value of the structure or
replacement cost of the facility (including all “public facilities” as defined in the Robert
T. Stafford Disaster Relief and Emergency Assistance Act of 1988) before the repair or
improvement is started, or if the structure or facility has been damaged and is proposed to
be restored. Substantial improvement includes work to address substantial damage to a
structure or facility. If a facility is an essential link in a larger system, the percentage of
damage will be based on the cost of repairing the damaged facility relative to the
replacement cost of the portion of the system which is operationally dependent on the
facility. The term “substantial improvement” does not include any alteration of a
structure or facility listed on the National Register of Historic Places or a State Inventory
of Historic Places.
* * * * *
Support of floodplain and wetland development means to, directly or indirectly,
encourage, allow, serve, or otherwise facilitate development in floodplains or wetlands.
Development means any man-made change to improved or unimproved real estate,
including but not limited to new construction, mining, dredging, filling, grading, paving,
excavation or drilling operations, or storage of equipment or materials. Direct support
results from actions within floodplains or wetlands, and indirect support results from
actions outside of floodplains or wetlands.

Wetlands means those areas which are inundated or saturated by surface or
ground water with a frequency sufficient to support, or that under normal hydrologic
conditions does or would support, a prevalence of vegetation or aquatic life typically
adapted for life in saturated or seasonally saturated soil conditions, including wetlands
areas separated from their natural supply of water as a result of construction activities
such as structural flood protection methods or solid-fill road beds, and activities such as
mineral extraction and navigation improvements. Examples of wetlands include, but are
not limited to, swamps, fresh and salt water marshes, estuaries, bogs, beaches, wet
meadows, sloughs, potholes, mud flats, river overflows, and other similar areas. This
definition is intended to be consistent with the definition utilized by the U.S. Fish and
Wildlife Service.
6. Amend § 9.5 by revising paragraph (a)(3), the first sentence of paragraph
(b)(1), and paragraphs (c) through (g) to read as follows:
§ 9.5 Scope.
(a) ***
(3) The amendments to this part made on September 9, 2024 apply to new actions
for which assistance is made available pursuant to declarations under the Robert T.
Stafford Disaster Relief and Emergency Assistance Act of 1988 on or after September 9,
2024 and new actions for which assistance is made available pursuant to notices of
funding opportunities published on or after September 9, 2024. For ongoing actions for
which assistance was made available prior to that date, legacy program regulations
(available at http://www.fema.gov) shall apply.
(b) ***
(1) Executive Order 11990, Protection of Wetlands, contains a limited exemption
not found in Executive Order 11988, Floodplain Management, as amended. ***
* * * * *

(c) Decision-making involving certain categories of actions. The provisions set
forth in this part are not applicable to the actions enumerated in paragraphs (c)(1) through
(10) of this section except that the Regional Administrators shall comply with the spirit of
Executive Order 11988, as amended, and Executive Order 11990 to the extent
practicable. For any action which is excluded from the actions enumerated below, the
full 8-step process applies (see § 9.6) (except as indicated at paragraphs (d), (e), and (g)
of this section regarding other categories of partial or total exclusion). The provisions of
this part do not apply to the following (all references are to the Robert T. Stafford
Disaster Relief and Emergency Assistance Act of 1988, Pub. L. 93-288, as amended,
except as noted):
(1) Assistance provided for emergency work essential to save lives and protect
property and public health and safety performed pursuant to sections 403 and 502;
(2) Emergency Support Teams (section 303);
(3) Emergency Communications (section 418);
(4) Emergency Public Transportation (section 419);
(5) Fire Management Assistance (section 420), except for hazard mitigation
assistance under sections 404 and 420(d);
(6) Community Disaster Loans (section 417), except to the extent that the
proceeds of the loan will be used for repair of facilities or structures or for construction of
additional facilities or structures;
(7) The following Federal Assistance to Individuals and Households Program
(section 408) categories of assistance:
(i) Financial assistance for temporary housing (section 408(c)(1)(A));
(ii) Lease and repair of rental units for temporary housing (section
408(c)(1)(B)(ii)), except that Step 1 (§ 9.7) shall be carried out;
(iii) Repairs (section 408(c)(2));

(iv) Replacement (section 408(c)(3)); and
(v) Financial assistance to address other needs (section 408(e)).
(8) Debris clearance and removal (sections 403 and 502), except those grants
involving non-emergency disposal of debris within a floodplain or wetland (section 407);
(9) Actions under sections 406 and 407 of less than $18,000. Such $18,000
amount will be adjusted annually to reflect changes in the Consumer Price Index for All
Urban Consumers published by the Department of Labor;
(10) Placement of families in existing resources and Temporary Relocation
Assistance provided to those families so placed under the Comprehensive Environmental
Response, Compensation, and Liability Act of 1980, Public Law 96-510.
(d) Abbreviated decision-making process applying steps 1, 4, 5, and 8. The
Regional Administrator shall apply steps 1, 4, 5, and 8 of the decision-making process
(§§ 9.7, 9.10, and 9.11) to repairs under section 406 of the Robert T. Stafford Disaster
Relief and Emergency Assistance Act of 1988, Pub. L. 93-288, as amended, between
$18,000 and $91,000. Such $18,000 and $91,000 amounts will be adjusted annually to
reflect changes in the Consumer Price Index for All Urban Consumers published by the
Department of Labor. For any action which is excepted from the actions listed below
(except as otherwise provided in this section regarding other categories of partial or total
exclusion), the full 8-step process applies (See § 9.6). The Regional Administrator may
also require certain other portions of the decision-making process to be carried out for
individual actions as is deemed necessary. Steps 1, 4, 5, and 8 of the decision-making
process apply to actions under section 406 of the Stafford Act referenced above except
for:
(1) Actions in a floodway or coastal high hazard area; or
(2) New construction, substantial improvement, or repairs to address substantial
damage of structures or facilities; or

(3) Facilities or structures which have previously sustained damage from flooding
due to a major disaster or emergency or on which a flood insurance claim has been paid;
or
(4) Critical actions.
(e) Abbreviated decision-making process applying steps 1, 2, 4, 5, and 8. The
Regional Administrator shall apply steps 1, 2, 4, 5, and 8 of the decision-making process
(§§ 9.7, 9.8, 9.10, and 9.11, see § 9.6) to certain actions under Section 406 of the Robert
T. Stafford Disaster Relief and Emergency Assistance Act of 1988, Pub. L. 93-288, as
amended, provided in paragraphs (e)(1) and (2) od this section. Steps 3 and 6 (§ 9.9)
shall be carried out except that alternative sites outside the floodplain or wetland need not
be considered. After assessing impacts of the proposed action on the floodplain or
wetlands and of the site on the proposed action, alternative actions to the proposed action,
if any, and the “no action” alternative shall be considered. The Regional Administrator
may also require certain other portions of the decision-making process to be carried out
for individual actions as is deemed necessary. For any action which is excluded from the
actions listed below (except as otherwise provided in this section regarding other
categories of partial or total exclusion), the full 8-step process applies (see § 9.6). The
Regional Administrator shall apply steps 1, 2, 4, 5, and 8 of the decision-making process
(§§ 9.7, 9.8, 9.10, and 9.11, see § 9.6) to:
(1) Replacement of building contents, materials, and equipment (section 406).
(2) Repairs under section 406 to damaged facilities or structures, except any such
action for which one or more of the following is applicable:
(i) FEMA estimated cost of repairs is more than 50 percent of the estimated
reconstruction cost of the entire facility or structure or is more than $364,000. Such
$364,000 amount will be adjusted annually to reflect changes in the Consumer Price
Index for All Urban Consumers published by the Department of Labor; or

(ii) The action is located in a floodway or coastal high hazard area; or
(iii) Facilities or structures which have previously sustained structural damage
from flooding due to a major disaster or emergency or on which a flood insurance claim
has been paid; or
(iv) The action is a critical action.
(f) Other categories of actions. Based upon the completion of the 8-step decisionmaking process (§ 9.6), the Regional Administrator may find that a specific category of
actions either offers no potential for carrying out the purposes of the Orders and shall be
treated as those actions listed in paragraph (c) of this section, or has no practicable
alternative sites and shall be treated as those actions listed in paragraph (e) of this section,
or has no practicable alternative actions or sites and shall be treated as those actions listed
in paragraph (d) of this section. This finding will be made in consultation with FEMA
Resilience and the Council on Environmental Quality as provided in section 2(d) of
Executive Order 11988, as amended. Public notice of each of these determinations shall
include publication in the Federal Register and a 30-day comment period.
(g) The National Flood Insurance Program (NFIP). (1) FEMA Resilience shall
apply the 8-step decision-making process to program-wide actions under the NFIP,
including all regulations, procedures, and other issuances making or amending program
policy, and the establishment of programmatic standards or criteria. FEMA Resilience
shall not apply the 8-step decision-making process to the application of programmatic
standards or criteria to specific situations. Thus, for example, FEMA Resilience would
apply the 8-step process to a programmatic determination of categories of structures to be
insured, but not to whether to insure each individual structure.
(2) The provisions set forth in this part are not applicable to the actions
enumerated below except that FEMA Resilience shall comply with the spirit of the
Orders to the extent practicable:

(i) The issuance of individual flood insurance policies and policy interpretations;
(ii) The adjustment of claims made under the Standard Flood Insurance Policy;
(iii) The hiring of independent contractors to assist in the implementation of the
NFIP;
(iv) The issuance of individual flood insurance maps, Map Information Facility
map determinations, and map amendments; and
(v) The conferring of eligibility for emergency or regular program (NFIP) benefits
upon communities.
7. Revise § 9.6 to read as follows:
§ 9.6 Decision-making process.
(a) Purpose. This section sets out the floodplain management and wetlands
protection decision-making process to be followed by the Agency in applying the Orders
to its actions. The numbering of Steps 1 through 8 does not require that the steps be
followed sequentially. As information is gathered through the decision-making process,
and as additional information is needed, reevaluation of lower numbered steps may be
necessary.
(b) Decision-making process. Except as otherwise provided in § 9.5 regarding
categories of partial or total exclusion when proposing an action, the Agency shall apply
the 8-step decision-making process. FEMA shall:
(1) Step 1. Determine whether the proposed action is located in a floodplain
and/or a wetland as established by § 9.7; and whether it has the potential to affect or be
affected by a floodplain or wetland (see § 9.7);
(2) Step 2. Notify the public at the earliest possible time of the intent to carry out
an action in a floodplain or wetland, and involve the affected and interested public in the
decision-making process (see § 9.8);

(3) Step 3. Identify and evaluate practicable alternatives to locating the proposed
action in a floodplain or wetland (including alternative sites, actions, natural features,
nature-based approaches, and the “no action” option) (see § 9.9). If a practicable
alternative exists outside the floodplain or wetland FEMA must locate the action at the
alternative site.
(4) Step 4. Identify the potential direct and indirect impacts associated with the
occupancy or modification of floodplains and wetlands and the potential direct and
indirect support of floodplain and wetland development that could result from the
proposed action (see § 9.10);
(5) Step 5. Minimize the potential adverse impacts to or within floodplains and
wetlands and minimize support of floodplain and wetland development identified under
Step 4. Restore and preserve the natural and beneficial values served by floodplains, and
preserve and enhance the natural and beneficial values served by wetlands. Integrate
nature-based approaches where appropriate (see § 9.11);
(6) Step 6. Reevaluate the proposed action to determine first, if it is still
practicable in light of its exposure to flood hazards, the extent to which it will aggravate
hazards to others, and its potential to disrupt floodplain and wetland values; and second,
if alternatives preliminarily rejected at Step 3 are practicable in light of the information
gained in Steps 4 and 5. FEMA shall not act in a floodplain or wetland unless it is the
only practicable location (see § 9.9);
(7) Step 7. Prepare and provide the public with a finding and public explanation of
any final decision that the floodplain or wetland is the only practicable alternative (see §
9.12); and
(8) Step 8. Review the implementation and post-implementation phases of the
proposed action to ensure that the requirements stated in § 9.11 are fully implemented.
Oversight responsibility shall be integrated into existing processes.

8. Amend § 9.7 by revising paragraphs (a), (b), (c), and (d)(3) and (4) to read as
follows:
§ 9.7 Determination of proposed action’s location.
(a) Purpose. This section establishes Agency procedures for determining whether
any action as proposed is located in or affects a floodplain established in paragraph (c) of
this section or a wetland.
(b) Information needed. (1) The Agency shall obtain enough information so that it
can fulfill the requirements in this part to:
(i) Avoid Federal action in floodplain and wetland locations unless they are the
only practicable alternatives; and
(ii) Minimize harm to and within floodplains and wetlands.
(2) In all cases, FEMA shall determine whether the proposed action is located in a
floodplain or wetland. Information about the floodplain as established by paragraph (c)
of this section and the location of floodways and coastal high hazard areas may also be
needed to comply with this part, especially § 9.11.
(3) The following additional current and future flooding characteristics may be
identified by the Regional Administrator as applicable:
(i) Velocity of floodwater;
(ii) Rate of rise of floodwater;
(iii) Duration of flooding;
(iv) Available warning and evacuation time and routes;
(v) Special problems:
(A) Levees;
(B) Erosion;
(C) Subsidence;
(D) Sink holes;

(E) Ice jams;
(F) Debris load;
(G) Pollutants;
(H) Wave heights;
(I) Groundwater flooding;
(J) Mudflow.
(vi) Any other applicable flooding characteristics.
(c) Floodplain determination. In the absence of a finding to the contrary, FEMA
will determine that a proposed action involving a facility or structure that has been
flooded previously is in the floodplain. In determining if a proposed action is in the
floodplain:
(1) FEMA shall determine whether the action is an action subject to the FFRMS
as defined in § 9.4.
(i) If the action is an action subject to the FFRMS, FEMA shall establish the
FFRMS floodplain area and associated flood elevation by using the process specified in
(c)(3) of this section and one of the following approaches:
(A) Climate-Informed Science Approach (CISA): Using a climate-informed
science approach that uses the best-available, actionable hydrologic and hydraulic data
and methods that integrate current and future changes in flooding based on climate
science. This approach will also include an emphasis on whether the action is a critical
action as one of the factors to be considered when conducting the analysis;
(B) Freeboard Value Approach (FVA): Using the freeboard value, reached by
adding an additional 2 feet to the base flood elevation for non-critical actions and by
adding an additional 3 feet to the base flood elevation for critical actions;
(C) 0.2-Percent-Annual-Chance Flood Approach (0.2PFA): The 0.2 percent
annual chance flood; or

(D) Any other method identified in an update to the FFRMS.
(ii) FEMA may select among and prioritize the approaches in this paragraph
(c)(1) by policy.
(iii) FEMA may provide an exception to using the FFRMS floodplain and
corresponding flood elevation for an action subject to the FFRMS and instead use the 1
percent annual chance (base) floodplain for non-critical actions or the 0.2 percent annual
chance floodplain for critical actions where the action is in the interest of national
security, where the action is an emergency action, or where the action is a mission-critical
requirement related to a national security interest or an emergency action.
(2) If the action is not an action subject to the FFRMS as defined in § 9.4, FEMA
shall use, at a minimum:
(i) The 1 percent annual chance (base) floodplain and flood elevation for noncritical actions; and
(ii) The 0.2 percent annual chance floodplain and flood elevation for critical
actions.
(3) FEMA shall establish the floodplain and corresponding elevation using the
best available information. The floodplain and corresponding elevation determined using
the best available information must be at least as restrictive as FEMA’s regulatory
determinations under the NFIP where such determinations are available. In obtaining the
best available information, FEMA may consider other FEMA information as well as
other available information, such as information from:
(i) Department of Agriculture: Natural Resources Conservation Service, U.S.
Forest Service;
(ii) Department of Defense: U.S. Army Corps of Engineers;
(iii) Department of Commerce: National Oceanic and Atmospheric
Administration;

(iv) Department of the Interior: Bureau of Land Management, Bureau of
Reclamation, National Park Service, U.S. Fish and Wildlife Service, United States
Geological Survey;
(v) Tennessee Valley Authority;
(vi) Department of Transportation;
(vii) Environmental Protection Agency;
(viii) General Services Administration;
(ix) Agencies of State, Regional, and Indian Tribal governments; or
(x) Local sources such as Floodplain Administrators, Regional Flood Control
Districts, or Transportation Departments.
(4) If the sources listed in paragraph (c)(3) of this section do not have or know of
the information necessary to comply with the requirements in this part, the Regional
Administrator may seek the services of a professional registered engineer.
(5) If a decision involves an area or location within extensive Federal or state
holdings or a headwater area and FEMA’s regulatory determinations under the National
Flood Insurance Program are not available, the Regional Administrator shall seek
information from the land administering agency before information and/or assistance is
sought from the sources listed in paragraph (c)(3) of this section.
(d) ***
(3) If the identified sources do not have adequate information upon which to base
the determination, the Agency shall carry out an on-site analysis performed by a
representative of the FWS or other qualified individual for wetlands characteristics based
on the definition of a wetland in § 9.4.
(4) If an action constitutes new construction and is in a wetland but not in a
floodplain, the provisions of this part shall apply. If the action is not in a wetland, the
Regional Administrator shall determine if the action has the potential to result in indirect

impacts on wetlands. If so, all potential adverse impacts shall be minimized. For actions
which are in a wetland and the floodplain, completion of the decision-making process is
required. (See § 9.6). In such a case, the wetland will be considered as one of the natural
and beneficial values of the floodplain.
9. Amend § 9.8 by revising paragraphs (a) and (c)(1), the first sentence of
paragraph (c)(2), and paragraphs (c)(3) introductory text, (c)(3)(v), and (c)(4) and (5) to
read as follows:
§ 9.8 Public notice requirements.
(a) Purpose. This section establishes the initial notice procedures to be followed
when the Agency proposes any action in or affecting floodplains or wetlands.
*****
(c) ***
(1) For an action for which an environmental impact statement is being prepared,
the Notice of Intent to File an EIS constitutes the early public notice if it includes the
information required under paragraph (c)(5) of this section.
(2) For each action having national significance for which notice is being
provided, the Agency at a minimum shall provide notice by publication in the Federal
Register and shall provide notice by mail to national organizations reasonably expected to
be interested in the action. ***
(3) The Agency shall determine whether it has provided appropriate notices,
adequate comment periods, and whether to issue cumulative notices (paragraphs (c)(4),
(6), and (7) of this section) based on factors which include, but are not limited to:
*****
(v) Anticipated potential impact of the action.

(4) For each action having primarily local importance for which notice is being
provided, notice shall be made in accordance with the criteria under paragraph (c)(3) of
this section, and shall include, as appropriate:
(i) Notice through the internet or another comparable method.
(ii) Notice to Indian tribes when effects may occur on reservations.
(iii) Information required in the affected State’s public notice procedures for
comparable actions.
(iv) Publication in local newspapers.
(v) Notice through other local media including newsletters.
(vi) Notice to potential interested community organizations.
(vii) Direct mailing to owners and occupants of nearby or affected property.
(viii) Posting of notice on and off site in the area where the action is to be located.
(ix) Public hearing.
(5) The notice shall:
(i) Describe the action, its purposes, and a statement of the intent to carry out an
action affecting or affected by a floodplain or wetland;
(ii) Based on the factors in paragraph (c)(3) of this section, include a map of the
area and other identification of the floodplain and/or wetland areas which is of adequate
scale and detail; alternatively, FEMA may state that such map is available for public
inspection, including the location at which such map may be inspected and a telephone
number to call for information or may provide a link to access the map online;
(iii) Based on the factors in paragraph (c)(3) of this section, describe the type,
extent, and degree of hazard involved and the floodplain or wetland values present; and
(iv) Identify the responsible official or organization for implementing the
proposed action, and from whom further information can be obtained.
*****

10. Amend § 9.9 by:
a. Revising paragraphs (a)(1), (b)(2), and (c)(1) through (4);
b. Adding paragraph (c)(5);
c. Revising paragraphs (d), (e)(1)(i), (iii), and (iv), (e)(2) introductory text, (e)(3)
introductory text, and (e)(4); and
d. Lifting the suspension of paragraph (e)(6) and removing the paragraph.
The revisions and additions read as follows:
§ 9.9 Analysis and reevaluation of practicable alternatives.
(a) ****
(1) This section expands upon the directives set out in § 9.6 of this part in order to
clarify and emphasize the requirements to avoid floodplains and wetlands unless there is
no practicable alternative.
*****
(b) ***
(2) Alternative actions which serve essentially the same purpose as the proposed
action, but which have less potential to affect or be affected by the floodplain or
wetlands. In developing the alternative actions, the Agency shall use, where possible,
natural systems, ecosystem processes, and nature-based approaches; and
*****
(c) ***
(1) Natural environment (including, but not limited to topography, habitat,
hazards, when applicable);
(2) Social concerns (including, but not limited to aesthetics, historical and cultural
values, land patterns, when applicable);
(3) Economic aspects (including, but not limited to costs of space, technology,
construction, services, relocation, when applicable);

(4) Legal constraints (including, but not limited to deeds and leases, when
applicable); and
(5) Agency authorities.
(d) ***
(1) The Agency shall not locate the proposed action in the floodplain as
established by § 9.7(c) or in a wetland if a practicable alternative exists outside the
floodplain or wetland.
(2) If no practicable alternative exists outside the floodplain or wetland, in order
to carry out the action the floodplain or wetland must itself be a practicable location in
light of the review required in this section.
(e) ***
(1) ***
(i) The action is still practicable at a floodplain or wetland site, considering the
flood risk and the ensuing disruption of natural values;
*****
(iii) The scope of the action can be limited to increase the practicability of
previously rejected non-floodplain or wetland sites and alternative actions; and
(iv) Harm to or within the floodplain can be minimized using all practicable
means.
(2) Take no action in a floodplain unless the importance of the floodplain site
clearly outweighs the requirements to:
*****
(3) Take no action in a wetland unless the importance of the wetland site clearly
outweighs the requirements to:
*****

(4) In carrying out this balancing process, give the factors in paragraphs (e)(2) and
(3) of this section great weight.
*****
11. Amend § 9.10 by revising paragraph (a), the second sentence of paragraph
(b), and paragraphs (c) and (d) to read as follows:
§ 9.10 Identify impacts of proposed actions.
(a) This section ensures that the effects of proposed Agency actions are identified.
(b) *** Such identification of impacts shall be to the extent necessary to comply
with the requirements of this part to avoid floodplain and wetland locations unless they
are the only practicable alternatives to minimize harm to and within floodplains and
wetlands.
(c) This identification shall consider whether the proposed action will result in an
increase in the useful life of any structure or facility in question, maintain the investment
at risk and exposure of lives to the flood hazard or forego an opportunity to restore the
natural and beneficial values served by floodplains or wetlands.
(d) In the review of a proposed or alternative action, the Regional Administrator
shall consider and evaluate: impacts associated with modification of wetlands and
floodplains regardless of its location; additional impacts which may occur when certain
types of actions may support subsequent action which have additional impacts of their
own; adverse impacts of the proposed actions on lives and property and on natural and
beneficial floodplain and wetland values; and the three categories of factors listed below:
(1) Flood hazard-related factors. These include, but are not limited to, the factors
listed in § 9.7(b)(3);
(2) Natural values-related factors. These include, but are not limited to: water
resource values, as in storing and conveying floodwaters, maintaining water quality, and
groundwater recharge; living resource values, as in providing habitats and enhancing

biodiversity for fish and wildlife and plant resources; cultural resource values, as in
providing open space, natural beauty, recreation, scientific study, historical and
archaeological resources, and education; and cultivated resource values, as in creating
rich soils for agriculture, aquaculture, and forestry.
(3) Factors relevant to a proposed action’s effects on the survival and quality of
wetlands. These include, but are not limited to: Public health, safety, and welfare,
including water supply, quality, recharge and discharge; pollution; flood and storm
hazards; and sediment and erosion; maintenance of natural systems, including
conservation and long term productivity of existing flora and fauna, species and habitat
diversity and stability, hydrologic utility, fish, wildlife, timber, and food and fiber
resources; and other uses of wetlands in the public interest, including recreational,
scientific, and cultural uses.
12. Amend § 9.11 by:
a. Revising paragraphs (a) and (c)(1);
b. Revising the first sentence of paragraph (d) introductory text and revising
paragraphs (d)(1) introductory text, (d)(2) through (4), (d)(5) introductory text, and
(d)(9);
c. Lifting the suspension of paragraph (e)(4) and removing paragraph (e); and
d. Redesignating paragraph (f) as paragraph (e) and revising it.
The revisions read as follows:
§ 9.11 Mitigation.
(a) Purpose. This section expands upon the directives set out in § 9.6 of this part
and sets out the mitigative actions required if the preliminary determination is made to
carry out an action that affects or is in a floodplain or wetland.
*****
(c) ***

(1) Potential harm to lives and the investment from flooding based on flood
elevations as established by § 9.7(c);
*****
(d) Minimization standards. The Agency shall apply, at a minimum, the
following standards to its actions to comply with the requirements of paragraphs (b) and
(c) of this section (except as provided in § 9.5(c), (d), and (g) regarding categories of
partial or total exclusion). ***
(1) There shall be no new construction or substantial improvement in a floodway
and no new construction in a coastal high hazard area, except for:
*****
(2) For a structure which is a functionally dependent use or which facilitates an
open space use, the following applies: Any construction of a new or substantially
improved structure in a coastal high hazard area must be elevated on adequately anchored
pilings or columns, and securely anchored to such piles or columns so that the lowest
portion of the structural members of the lowest floor (excluding the pilings or columns) is
elevated to or above the floodplain as established by § 9.7(c). The structure shall be
anchored so as to withstand velocity waters and hurricane wave wash.
(3) The following applies to elevation of structures:
(i) There shall be no new construction or substantial improvement of structures
unless the lowest floor of the structures (including basement) is at or above the elevation
of the floodplain as established by § 9.7(c).
(ii) If the subject structure is nonresidential, instead of elevating the structure,
FEMA may approve the design of the structure and its attendant utility and sanitary
facilities so that the structure is watertight below the flood elevation with walls
substantially impermeable to the passage of water and with structural components having
the capability of resisting hydrostatic and hydrodynamic loads and effects of buoyancy.

(iii) The provisions of paragraphs (d)(3)(i) and (ii) of this section do not apply to
the extent that FEMA Resilience has granted an exception under § 60.6(b) of this chapter,
or the community has granted a variance which the Regional Administrator determines is
consistent with § 60.6(a) of this chapter. In a community which does not have a FEMA
regulatory product in effect, FEMA may approve a variance from the standards of
paragraphs (d)(3)(i) and (ii) of this section, after compliance with the standards of §
60.6(a).
(4) There shall be no encroachments, including but not limited to fill, new
construction, substantial improvements of structures or facilities, or other development
within a designated regulatory floodway that would result in any increase in flood
elevation within the community during the occurrence of the 1 percent annual chance
(base) flood discharge. Until a regulatory floodway is designated, no fill, new
construction, substantial improvements, or other development shall be permitted within
the 1 percent annual chance (base) floodplain unless it is demonstrated that the
cumulative effect of the proposed development, when combined with all other existing
and anticipated development, will not increase the water surface elevation of the 1
percent annual chance (base) flood more than the amount designated by the NFIP or the
community, whichever is most restrictive.
(5) Even if an action is a functionally dependent use or facilitates open space uses
(under paragraph (d)(1) or (2) of this section) and does not increase flood heights (under
paragraph (d)(4) of this section), such action may only be taken in a floodway or coastal
high hazard area if:
* * * * *
(9) In the replacement of building contents, materials and equipment, the
Regional Administrator shall require as appropriate, flood proofing and/or elevation of
the building and/or elimination of such future losses by relocation of those building

contents, materials, and equipment outside or above the floodplain as established by §
9.7(c).
(e) Restore and preserve. (1) For any action taken by the Agency which affects
the floodplain or wetland and which has resulted in, or will result in, harm to the
floodplain or wetland, the Agency shall act to restore and preserve the natural and
beneficial values served by floodplains and wetlands.
(2) Where floodplain or wetland values have been degraded by the proposed
action, the Agency shall identify, evaluate, and implement measures to restore the values.
(3) If an action will result in harm to or within the floodplain or wetland, the
Agency shall design or modify the action to preserve as much of the natural and
beneficial floodplain and wetland values as is possible.
13. Amend § 9.12 by:
a. Redesignating paragraphs (d) introductory text and (d)(1) through (6) as
paragraphs (d)(1) introductory text and (d)(1)(i) through (vi), respectively; and
c. Designate the undesignated text after newly redesignated paragraph (d)(1)(vi)
as paragraph (d)(2) and revise it.
The revision reads as follows:
§ 9.12 Final public notice.
*****
(d) ***
(2) When a damaged structure or facility is already being repaired by the State or
local government at the time of the project application, the requirements of Steps 2 and 7
(§ 9.8 and this section) may be met by a single notice. Such notice shall contain all the
information required by both sections.
14. Revise § 9.13 to read as follows:
§ 9.13 Particular types of temporary housing.

(a) This section sets forth the procedures whereby the Agency will provide certain
specified types of temporary housing at a private, commercial, or group site.
(b) Prior to providing the temporary housing described in paragraph (a) of this
section, the Agency shall comply with the provisions of this section. For temporary
housing not enumerated above, the full 8-step process (see § 9.6) applies.
(c) The actions described in paragraph (a) of this section are subject to the
following decision-making process:
(1) The temporary housing action shall be evaluated in accordance with the
provisions of § 9.7 to determine if it is in or affects the 1 percent annual chance (base)
floodplain or wetland.
(2) No temporary housing unit may be placed on a site in a floodway or coastal
high hazard area.
(3) An individual or family shall not be housed in the 1 percent annual chance
(base) floodplain or wetland unless the Regional Administrator has complied with the
provisions of § 9.9 to determine that such site is the only practicable alternative. The
following factors shall be substituted for the factors in § 9.9(c) and (e)(2) through (4):
(i) Speedy provision of temporary housing;
(ii) Potential flood risk to the temporary housing occupant;
(iii) Cost effectiveness;
(iv) Social and neighborhood patterns;
(v) Timely availability of other housing resources; and
(vi) Potential harm to the floodplain or wetland.
(4) For temporary housing units at group sites, Step 4 of the 8-step process shall
be applied in accordance with § 9.10.
(5) An individual or family shall not be housed in a floodplain or wetland (except
in existing resources) unless the Regional Administrator has complied with the provisions

of § 9.11 to minimize harm to and within floodplains and wetlands. The following
provisions shall be substituted for the provisions of § 9.11(d) for temporary housing
units:
(i) No temporary housing unit may be placed unless it is elevated to the fullest
extent practicable up to the base flood elevation and adequately anchored.
(ii) No temporary housing unit may be placed if such placement is inconsistent
with the criteria of the NFIP (44 CFR parts 59 and 60) or any more restrictive Federal,
State, or local floodplain management standard. Such standards may require elevation to
the base flood elevation in the absence of a variance.
(iii) Temporary housing units shall be elevated on open works (walls, columns,
piers, piles, etc.) rather than on fill where practicable.
(iv) To minimize the effect of floods on human health, safety and welfare, the
Agency shall:
(A) Where appropriate, integrate all of its proposed actions in placing temporary
housing units for temporary housing in floodplains into existing flood warning or
preparedness plans and ensure that available flood warning time is reflected;
(B) Provide adequate access and egress to and from the proposed site of the
temporary housing unit; and
(C) Give special consideration to the unique hazard potential in flash flood and
rapid-rise areas.
(6) FEMA shall comply with Step 2 Early Public Notice (§ 9.8(c)) and Step 7
Final Public Notice (§ 9.12). In providing these notices, the emergency nature of
temporary housing shall be taken into account.
(7) FEMA shall carry out the actions in accordance with Step 8, ensuring the
requirements of this section and the decision-making process are fully integrated into the
provision of temporary housing.

(d) The following applies to the permanent installation of a temporary housing
unit as part of a sale or disposal of temporary housing:
(1) FEMA shall not permanently install temporary housing units in floodways or
coastal high hazard areas. FEMA shall not permanently install a temporary housing unit
in floodplains as established by 9.7(c) or wetlands unless there is full compliance with the
8-step process. Given the vulnerability of temporary housing units to flooding, a
rejection of a non-floodplain location alternative and of the no-action alternative shall be
based on:
(i) A compelling need of the family or individual to buy a temporary housing unit
for permanent housing; and
(ii) A compelling requirement to permanently install the unit in a floodplain.
(2) FEMA shall not permanently install temporary housing units in the floodplain
as established by § 9.7(c) unless they are or will be elevated at least to the elevation of
the floodplain as established by § 9.7(c).
(3) The Regional Administrator shall notify FEMA Resilience of each instance
where a floodplain location has been found to be the only practicable alternative for
permanent installation of a temporary housing unit.
15. Amend § 9.14 by revising paragraphs (a), (b)(4), (5), and (6), (b)(7)(ii) and
(iii), and (b)(9) to read as follows:
§ 9.14 Disposal of Agency property.
(a) This section sets forth the procedures whereby the Agency shall dispose of
property.
(b) ***
(4) Identify the potential impacts and support of floodplain and wetland
development associated with the disposal of the property in accordance with § 9.10;

(5) Identify the steps necessary to minimize, restore, preserve and enhance in
accordance with § 9.11. For disposals, this analysis shall address all four of these
components of mitigation where unimproved property is involved, but shall focus on
minimization through elevation or floodproofing and restoration of natural values where
improved property is involved;
(6) Reevaluate the proposal to dispose of the property in light of its exposure to
the flood hazard and its natural values-related impacts, in accordance with § 9.9. This
analysis shall focus on whether it is practicable in light of the findings from §§ 9.10 and
9.11 to dispose of the property, or whether it must be retained. If it is determined that it is
practicable to dispose of the property, this analysis shall identify the practicable
alternative that best achieves the Agency’s mitigation responsibility.
(7) ***
(ii) Properties located inside the floodplain but outside of the floodway and the
coastal high hazard area; and
(iii) Properties located in a floodway, regulatory floodway, or coastal high hazard
area.
*****
(9) The Agency shall ensure that the applicable mitigation requirements are fully
implemented in accordance with § 9.11(c).
*****
16. Amend § 9.16 by revising paragraphs (b) introductory text, (b)(2) through
(5), and (c) to read as follows:
§ 9.16 Guidance for applicants.
*****

(b) This shall be accomplished primarily through amendment of all Agency
instructions to applicants, and also through contact made by agency staff during the
normal course of their activities, to fully inform prospective applicants of:
*****
(2) The decision-making process to be used by the Agency in making the
determination of whether to take an action in or affecting floodplains or wetlands as set
out in § 9.6;
(3) The practicability analysis as set out in § 9.9;
(4) The mitigation responsibilities as set out in § 9.11;
(5) The public notice and involvement process as set out in §§ 9.8 and 9.12; and
*****
(c) Guidance to applicants shall be provided, where possible, prior to the time of
application in order to minimize potential delays in the Agency’s processing of the
application due to failure of applicants to follow the provisions in this part.
17. Amend § 9.17 by revising paragraphs (a), (b) introductory text, (b)(3) through
(5), (c), and (d) to read as follows:
§ 9.17 Instructions to applicants.
(a) Purpose. In accordance with Executive Orders 11988, as amended, and 11990,
the Federal executive agencies must respond to a number of floodplain management and
wetland protection responsibilities before carrying out any of their activities, including
the provision of Federal financial and technical assistance. This section provides notice
to applicants for Agency assistance of both the criteria that FEMA is required to follow,
and the applicants’ responsibilities under this part.
(b) Responsibilities of applicants. Based upon the guidance provided by the
Agency under § 9.16, the guidance included in the U.S. Water Resources Council's
Guidelines for Implementing Executive Order 11988, Floodplain Management, and

Executive Oder 13690, Establishing a Federal Flood Risk Management Standard and a
Process for Further Soliciting and Considering Stakeholder Input, and based upon the
provisions of the Orders and this part, applicants for Agency assistance shall recognize
and reflect in their application:
*****
(3) The practicability analysis as set out in § 9.9;
(4) The mitigation responsibilities as set out in § 9.11;
(5) The public notice and involvement process as set out in §§ 9.8 and 9.12; and
*****
(c) Provision of supporting information. Applicants for Agency assistance may
be required to provide supporting information relative to the various responsibilities set
out in paragraph (b) of this section as a prerequisite to the approval of their applications.
(d) Approval of applicants. Applications for Agency assistance shall be reviewed
for compliance with the provisions in this part in addition to the Agency’s other approval
criteria.
18. Amend § 9.18 by revising paragraph (a)(1), the second sentence of paragraph
(b)(1), and the first sentence of (b)(2) to read as follows:
§ 9.18 Responsibilities.
(a) ***
(1) Implement the requirements of the Orders and this part. Under §§ 9.2 and 9.6
through 9.13 and 9.15 where a direction is given to the Agency, it is the responsibility of
the Regional Administrator.
*****
(b) ***

(1) *** When a decision of a Regional Administrator relating to disaster
assistance is appealed, FEMA Resilience may make determinations under this part on
behalf of the Agency.
(2) Prepare and submit to the Office of Chief Counsel reports to the Office of
Management and Budget in accordance with section 2(b) of Executive Order 11988, as
amended, and section 3 of Executive Order 11990. ***
Appendix A to Part 9 [Removed]
19. Remove appendix A to part 9.


Deanne Criswell,
Administrator,
Federal Emergency Management Agency.
[FR Doc. 2024-15169 Filed: 7/10/2024 8:45 am; Publication Date: 7/11/2024]