CC Resolution No. 1134 2039
RESOLUTION NO. 1134
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF BAYTOWN,
TEXAS , ADOPTING A FLOODPLAIN MANAGEMENT PLAN AND
REPETITIVE LOSS PLAN; AND PROVIDING FOR THE EFFECTIVE
DATE THEREOF.
WHEREAS , the National Flood Insurance Program has
successfully encouraged communities throughout the country to
enact and enforce floodplain regulations; and
WHEREAS, in order to encourage communities to do more than
enforce minimum regulatory standards, the Federal Insurance
Administration has implemented a Community Rating System; and
WHEREAS, the Community Rating System provides incentives for
communities to take additional actions to reduce flood damage by
the increasing public awareness, by identifying potential flood
hazards , and by engaging in additional flood mitigation
activities; and
WHEREAS , the Community Rating System provides these
incentives by allowing for reduced flood insurance premiums to
property owners in participating communities, sometimes reducing
premiums by 45%; and
WHEREAS, the system requires the participants to submit
information describing the activities that the community is
undertaking to promote public awareness , to identify flood
hazards, and to mitigate flood damage, and further requires the
participants to submit plans for future activities to promote
these goals; and
WHEREAS, the City of Baytown has a long history of actively
participating in efforts to reduce flood losses in the Baytown
area, having joined the National Flood Insurance Program almost
immediately after the Program's inception in 1968: and
WHEREAS, the Planning Commission of the City of Baytown has
reviewed the proposed plan and concurs with the City staff
recommendation; and
WHEREAS, the City of Baytown has held a public hearing on
the Proposed Floodplain Management Plan and Repetitive Loss Plan;
NOW THEREFORE
BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF BAYTOWN,
TEXAS:
Section 1 : That the City of Baytown hereby adopts the
Floodplain Management Plan and Repetitive Loss Plan attached
hereto as Exhibit "A" and the administration is directed to
submit it to the Federal Insurance Administration.
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Section 2 : This resolution shall take effect immediately
from and after its passage by the City Council of the City of
Baytown.
INTRODUCED, READ and PASSED by the affirmative vote of the
City Council of the City of Baytown , this the 12th day of
December, 1991.
EMMETT -0. HUTTO, Mayor
ATTEST:
ILEEN P. HALL, City Clerk
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d '
ACIO RAMIREZ, SIV, City Attorney
C: 1: 79:25
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Floodplain Management Plan
and
Repetitive Loss Reduction Plan
The City of Baytown has taken numerous actions over the past
several decades to alleviate the area's flooding and
repetitive loss problems. Yet, the City recognizes that
these actions have not been sufficient to remedy the
problems. This plan describes the nature and magnitude of
the flooding and repetitive loss problems, previously taken
actions, alternative remedies, and a plan for future action
to address the problems.
Background
Baytown has a total population of 63 ,850 persons. The
planning area totals over 60 square miles. Located along
the Texas Gulf Coast, the city lies adjacent to the Houston
Ship Channel and the Galveston Bay system.
Economically, the area is based on the Petrochemical
industry. other major industries includes the retail and
governmental services sectors.
Houston is located 20 miles to the west. Primary
transportation access is provided via Interstate Highway 10
and State Highway 146.
Problem Identification
Setting and General Causes. Baytown sits in a tidal and
riverine location. With several miles of coastline and
Goose Creek and Cedar Bayou, Baytown has several natural
features which contribute to the local flooding problems.
Flooding and repetitive loss occurrences in Baytown are a
result of tidal action (tropical disturbances) , riverine
overflows, and localized drainage problems. Subsidence is a
contributory factor in the problem of tidal and, to a lessor
extent, the riverine flooding problem.
Major Events. Since 1961, the Baytown area has experienced
ten (10) major flooding events (see Table 1) . These events
have been primarily caused by hurricanes or smaller tropical
disturbances. Such disturbances have caused the resulting
tidal, riverine, and drainage flooding damage. The impact
area of these major events has ranged from as small as a
subdivision to as large as the entire city. Cumulative
losses from these events have totaled in excess of $12
million. Some of these events have resulted in damage to
only a few homes and businesses while others have flooded or
damaged several hundred homes and businesses.
Page 1
Table 1
Major Events in the Baytown Area:
1961 to Present
Structures Amount of Persons
Event Year Damaged Damages Evacuated
Carla 1961 N/A $3 . 5 Million 1500
Tidal Flood 1969 145 $1. 0 Million 1200
14"-16" Rain 1973 150 $0. 3 Million 0
Claudette 1979 180 $0. 76 Million 500
Debra 1973 275 $3 . 0 Million S00
9" Rain/
High Tides 1981 N/A Not Available N/A
Alicia 1983 N/A $1. 1 Million N/A
Allison 1989 30 $0. 03 Million 0
Chantal 1989 N/A $1.25 Million 100
Jerry 1989 N/A $2 . 0 Million 100
Source: City of Baytown, Emergency Management Coordinator,
1991.
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Repetitive Losses. Analysis of the repetitive loss data
supplied by the Federal Emergency Management Agency (FEMA)
shows 215 repetitive loss properties in the city of Baytown.
Further analysis revealed that most of these properties have
sustained losses due to Tidal Flooding and are located in
the western portion of the city along Burnett Bay and Scott
Bay (see Map 1) . A second major concentration is located
along the upper reaches of Goose Creek around the Lantern
Park, Quail Hollow, and Country Club Oaks subdivisions.
Three other "significant" areas were identified, however,
the balance of the repetitive loss properties are generally
scattered throughout the city and sustain losses due to
improper drainage.
Flood Hazard Area Inventory
Watersheds. Four watersheds drain the Baytown area: Cedar
Bayou, Goose Creek, San Jacinto River, and the bays.
Baytown's watersheds cover an area of approximately 66
square miles. Of this amount, approximately half lies
within the City's incorporated jurisdiction.
Floodplain. Nearly four square miles (3 . 92) of the
incorporated area of Baytown, lies within the FEMA
designated 100-year Special Flood Hazard Area (SFHA) . A
recent survey by the staff of the Planning & Traffic
Department identified over 350 structures lying within the
100-year floodplain.
Development Trends & Land Uses. Baytown developed along the
water and has grown northerly away from the bays. Most of
the properties which have been directly affected by the
flooding and repetitive losses are residential. Exxon, the
major employer in the area, has facilities located near the
floodplain and bays.
Recent developments have generally been located away from
the major creeks and streams. These developments have
provided effective drainage systems to reduce the potential
flood hazards. However, older areas of the city were
developed with less adequate drainage systems.
Most of the land within the city is either in residential or
vacant use. Residential land is typically in subdivisions
with a density of approximately 4 lots per acre. Commercial
land is dispersed throughout the city with most of the land
concentrated along major roadways. Industrial land uses
within the city is very limited.
Most of the industrially developed land in the area is
actually located outside of the city within the "industrial
district" . When considering the surrounding area and not
just the city, the land in industrial use becomes a much
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more significant share of the developed land. Major
industrial land lying outside of the city includes Exxon,
Mobay, Chevron, U. S. X. Corporation properties, and Houston
Lighting & Power.
Development Constraints. Development of the SFHA is limited
by a variety of factors including fragmented ownership, bad
soils, subsidence, wetlands, and infrastructure needs. Much
of the properties currently in the flood hazard areas inside
the city were previously developed as residential building
sites and are in individual ownership. However, the city
has purchased nearly all of the lots in the former Brownwood
subdivision which is the single largest concentration of
repetitive loss properties. Excluding the Brownwood area,
the fragmentation and sizes of ownership provides difficulty
in preserving the area for open space and promoting sound
private development of the properties.
After Brownwood and its Tidal flooding problems, drainage is
the next most common cause of flooding affecting repetitive
loss properties. Poorly drained soils conditions and
inadequate drainage facilities combine to create these very
localized, but common, problems. Soils in the Baytown area
are classified as being in the following Soil Associations:
Lake Charles-Bernard
Midland-Beaumont
Clodine-Addicks-Gessner
Aldine-Ozan
Nahatche-Voss-Kaman
Generally, soils in these associations are poorly drained
with slow permeability. The last association is the best
draining of the 5 associations but is also in the least
amount generally limited to the southern reach of Goose
Creek and along the bays.
More thorough review of the soils analysis revealed that
soils in the bay areas of the repetitive losses are
characterized by limited suitability for urban uses. This
same conclusion can generally be made of soils throughout
the flood hazard areas.
The former Brownwood subdivision was significantly impacted
by subsidence. Other areas of the city have been similarly
impacted but not to the same degree.
Until 1978, all of the land in Baytown and the surrounding
area had been sinking steadily due to the withdrawal of
ground or well water. The entire Houston area formerly used
two water-bearing aquifers as the main source of water for
cities, industries, and agriculture. All of these users
were, in effect, taking water from one big well. As the
water was withdrawn, the hydrostatic pressure dropped. This
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drop resulted in the lower ground elevations associated with
subsidence. From 1915 to 1978 , the western part of Baytown
sank more than nine feet with most of the subsidence
occurring between 1940 and 1976. Since the city of Baytown
has completely converted to surface water as the source of
its public supply, further sinking due to water withdrawal
is considered to be negligible.
Unfortunately, much of the land that subsided during the
past 50 years was being developed during that time.
Additionally, the areas which were most significantly
impacted by subsidence also are located along the bays which
are also most vulnerable to tidal and drainage flooding
hazards. The subsidence has increased the amount of land
that is subject to flooding by reducing the elevation of
land that would normally be above the flood level.
Increasing concern for wetlands protection has provided
another area of development constraints within the flood
hazard and repetitive loss areas. Wetlands have not been
mapped for the entire area, but only as specific projects
are being undertaken. Generally, wetlands would be expected
to be identified in the vegetative areas of the Brownwood
area, along the bays, and along the creeks and streams.
Protection of the wetlands will also reduce potential losses
for landward development. Federal and state regulations
governing disturbance of wetland areas precludes use of
State/Federal funds to alter the wetlands without
compensatory mitigation of the alteration.
Electrical and city utilities to the Brownwood area have
been disconnected for nearly a decade. Limitation of
utility services has been an effective tool in prohibiting
rebuilding in this major area of repetitive losses. In an
area such as Brownwood, a no-build alternative is the only
practical approach.
In some of the other repetitive loss areas in the city, lack
of adequate infrastructure may be a contributory cause of
the flooding. The low elevation of the Garth Road bridge
over the east fork of Goose Creek is a specific example
where the existing infrastructure may be an impediment to
drainage and result in blockage of the stream. Throughout
the area, ditches which have been filled with debris and
other materials cause local flooding attributable to
improper drainage. Similarly, the lack of maintenance of
detention ponds in subdivisions and other developments
create additional local drainage problems. Drainage
structures and systems pose constraints to development in
this area where soils conditions necessitate sound drainage
systems and improvements.
Critical Facilities. Local hospitals and other emergency
facilities are generally located outside of the flood hazard
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areas and are dispersed to different parts of the city. The
City's emergency response plan provides a mechanism to
ensure that the City's and the area's private emergency
equipment is dispersed to different parts of the city.
The city's wastewater treatment plants are located in or
adjacent to the flood hazard areas. However, the facilities
are flood proofed to prevent damage due to high water.
Due to the presence of streams/creeks and the bays, bridges
are critical facilities. The West Main, Park Street, and
Garth Road bridges over Goose Creek have posed problems in
the past due to their condition and elevation. Similarly,
the most critical facility for evacuation of the area south
of Baytown is the 2-lane Baytown-LaPorte Tunnel which is
being replaced with an 8-lane bridge.
Community Needs, Goals, and Plans. Baytown is currently in
the process of developing its first comprehensive plan in 25
years. Thus, overall community needs, goals, and plans have
not been finalized. This comprehensive plan is to be
adopted in April 1992 . Even though the comprehensive plan
is not complete, several pertinent needs and goals can be
enunciated here:
-Encourage the development of green belts along flood
hazard areas.
-Encourage private-sector revitalization of the older
commercial and residential areas.
-Encourage development of hotel/marina complex on
Bayland Park.
-Upgrade existing infrastructure.
-A regional detention program.
Some of the short-range plans of the City include:
-Development of a greenbelt along the southern reach of
Goose Creek.
-Develop a nature center on the site of the former
Brownwood subdivision.
-Raise the Garth Road bridge over the east fork of
Goose Creek.
-Raise the West Main bridge over Goose Creek.
-Widen Massey-Tompkins Road and install a drainage
system.
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Additionally, the state and Harris County are (or will be)
undertaking various projects in the area. Some of the
projects will alleviate some of the flooding and repetitive
loss problems. Among these state and county projects are
-Raise the Park Street bridge.
-Replace the 2-lane Baytown-LaPorte tunnel with a 8-
lane bridge.
-Build a regional detention facility on Goose Creek
north of Cedar Bayou-Lynchburg Road.
Review Possible Activities
A variety of techniques and activities are available to
remedy current and diminish future flood problems. These
activities range from public education to regulation to
construction projects. The following sections provide a
description of the possible activities which have been
reviewed and discussed.
Public Education. Send a notice to each resident of the
flood hazard area providing information as to the flood
risks and availability of insurance. Similar information on
the flooding risks within the SFHA could be disseminated in
the schools as a means of educating future consumers of
housing and land. The City could continue and expand its
current efforts to have notices published in the Baytown Sun
informing residents of the flood hazards in the area and
proper precautions to be taken in the event of a flood.
Additional resources could be provided through the Sterling
Library to inform persons of flood hazards and mitigation
measures which they could implement. Development and
dissemination of more brochures and listing of flood-prone
properties to insurance offices, real estate agents, title
companies, and civic groups could increase community
awareness.
Flood Hazard Area Mapping_ A city-wide, integrated
Geographic Information System would be an effective means of
delineation of the flood hazard area and provide more
accurate and prompt determinations of flood hazards.
Delineation of the flood hazard areas on the city's land use
and tax maps would also improve dissemination of the
information.
Flood Protection Assistance. Local engineering and
architectural firms and the city could provide assistance to
prospective buyers and builders by reviewing retrofit and
development plans to determine the most effective flood
proofing technique. The city could publicize its'
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assistance in reviewing drainage problems and making map
determinations.
Regulations. Current regulations encourage use of the flood
plain for apartment development and do not require any
"free-board" (clearance above the lop-year flood elevation) .
Baytown does not currently have zoning or similar land use
restrictions which protect open space.
Land use controls which maintain flood plain areas as open
space can be effective tools in reducing future flood damage
losses incurred by future development as well as existing
development. Open space zoning and development restrictions
just some of the tools which may be considered as part of
the comprehensive plan for Baytown.
Increasing the requirements for projects within the flood
hazard areas is another approach for mitigating the impacts
of developments within the flood plain. Some examples of
such techniques include compensatory cut & fill, free board
heights, and restrictive upstream flood impact standards.
Acquisition and Open Space Use. Acquisition of flood prone
lands through purchase and/or donation is one approach for
reduction of damage to existing repetitive loss properties
and precluding future losses. The City could continue its
current practice which has been to acquire properties in
Brownwood through voluntary sale and along Goose Creek
through donation. Alternatively, an aggressive purchase and
condemnation approach could be pursued. To pursue the
alternative approach could cost substantially more than the
current approach to acquisition.
City-acquired properties located in the flood plain could be
restricted to open space use and maintained in such
condition through public ownership. Other options could
include resale of the land with deed restrictions covering
the allowable uses of the property. Similarly, to protect
the flood plain and reduce flood losses, the City could
acquire less than fee-simple ownership and restrict the uses
to those uses which would be compatible with flood plain
management principles.
Construction and Maintenance Proiects. A series of dams and
detention facilities along Goose Creek and Cedar Bayou could
protect downstream developments from the impacts of flooding
caused by run-off from upstream developments. These are
expensive alternatives which could have positive impacts
beyond merely the flood control aspects. Channelization and
improvements along Goose Creek and tributaries to Goose
Creek could enhance the carrying capacity of the stream
which would reduce flood damage.
Page 8
A program to maintain existing facilities could effectively
address flooding problems as they relate to localized
drainage concerns. An annual or at least bi-annual ditch
inspection and follow-up cleaning program could help
maintain existing ditches and their related stream flow
capacity at minimal costs. Such a program could address all
the ditches or just the major facilities.
Maintenance of the existing detention ponds would need to be
addressed by their owners and the City could use a
regulatory approach to attempt to enforce such maintenance
requirements. However, due to the nature of land
development, a proliferation of small detention ponds is not
an effective means of controlling storm water run-off.
Eventually, such ponds would need to be phased out and
replaced by larger facilities which could serve a wider area
(such the loth Street detention pond) .
Proposed Activities
The City of Baytown Emergency Management Coordinator has
estimated that the city has already addressed three-quarters
of the repetitive loss properties through acquisition and
drainage improvement projects. Activities listed below are
intended to address the remaining properties and reduce
future flood losses.
Public Education & Awareness. The city will:
Continue its current efforts to prepare and distribute
brochures and notices concerning local flood hazards.
A special notice and publication on properties identified
within the SFHA will be prepared and distributed to local
real estate and insurance offices in 1991-1992 .
Continue to publish notices in the newspaper regarding flood
hazards.
Begin special efforts in 1992 to have notices published
informing the public regarding flood damage prevention
materials which are available for their use and flood map
determination assistance which the city provides.
In 1992 , request that FEMA restudy and remap the floodplain
elevations in several areas where development and drainage
improvement projects have been implemented and the
floodplain delineations may need to be revised.
Flood Protection Assistance. The city will undertake the
following actions:
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Continue its efforts to make residents and visitors aware of
local flood hazards and proper protection activities.
Develop a listing in 1992 of local architects and engineers
who are capable and willing to advise residents of the
adequacy of their flood proofing efforts.
Regulations. During 1992, the City will consider:
Changing its Floodplain Management Ordinance to bring it
into consistency with Harris County Regulations. Two
specific aspects which will be examined are 1) providing for
a compensatory cut/fill within the floodplain while not
allowing any increase in the 100-year flood height upstream,
and 2) requiring the first floor elevation to be at least 1
foot above the base 100-year flood elevation.
As part of the City's comprehensive planning effort, if
zoning is developed, an open-space and buffer zone
designation within the ordinance to protect floodplain land.
Changing aspects of the Subdivision Regulations which
encourage development in the floodplain.
Changes in ordinances and policies which will make
development of flood-plain lands less desirable.
Acquisition and Open Space. The City intends to:
During 1992 , initiate work on phase 1 of the Goose Creek
Greenbelt and open space park.
By the end of 1996, finish acquisition of the Brownwood
subdivision properties and begin development of the Baytown
Nature Center.
Construction and Maintenance Projects. The City should:
Initiate a bi-annual inspection of all major drainage
ditches with a follow-up cleaning program as necessary.
By the end of 1996, complete the widening of Massey-Tompkins
Road and associated stormwater drainage system.
Develop a new comprehensive stormwater management plan by
the end of 1996.
Implement drainage improvements in the following areas
before the end of 1993 :
-Abbe' Addition subdivision
-Busch-Terrace subdivision
-Alva-Hines area
-Heifer-Houston-Dallas area
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