    [From the U.S. Government Printing Office, www.gpo.gov]

                                                 Appendix L

                                           FLOOD VULNERABILITY ASSESSMENT
                                           CITY OF MILFORD, CT

    														CZIC COLLECTION

                      HD
                      1676
                      C6
                      C58
                      1983

                               CITY OF MILFORD, CONNECTICUT

                              FLOOD VULNERABILITY ASSESSMENT

                    Connecticut Department of Environmental Protection

                                 Natural Resources Center

                                  Hartford, Connecticut

                               CITY OF MILFORD, CONNECTICUT

                              FLOOD VULNERABILITY ASSESSMENT

                                       Prepared by:

                          Department of Environmental Protection
                                 Natural Resources Center
                                  Hartford, Connecticut
                                       August 1983

            Funded through the State Assistance Program of the Emergency
            Management and National Preparedness Program, Federal Emergency
            Management Agency.

                                        TABLE OF CONTENTS

             Program Description                                                    4

             Municipal Profile                                                      7

             Coastal Property Homeowner's Questionnaire: Tabulation and           23
                                                          Analysis

               I.   Flood Hazard Awareness & Preparedness Assessment              24
               II.  Information Provisions                                        26
               III. Conclusion                                                    27

             Emergency Operations Plan Review                                     34

               Checklist for Evaluation of Existing Flood Preparedness Plans      36
               Planning Guidance                                                  41

             Recommendations                                                      58

               I.   Emergency Operations Plan                                     59
               II.  Flood Insurance                                               67
               III. Floodplain.Zoning and Floodplain Ordinances                   69
               -IV. Land Acquisition                                              69
               IV.  Road, Bridge and Culvert Design Standards                     70
               V.   Stormwater Management                                         71
               VI.  Conclusions                                                   71

                                               -3-

                                     PROGRAM DESCRIPTION

                  The Natural Resources Center in conjunction -with the Water
             Resources and Coastal Area Management Units of the Department of
             Environmental Protection undertook a study utilizing a grant from
             the Federal Emergency Management Agency (FEMA) to assess
             potential flood hazards in Connecticut's coastal communities.
             The study produced an inventory of residential, commercial and
             industrial structures located within coastal and riverine flood
             zones and examined municipal flood preparedness measures.
             Specific program goals included: (1) development of a sound data
             base for examining flood hazard potential, (2) informing
             municipal leadership of potential flood problems, (3) assisting
             the municipalities in developing better flood forecasting,
             warning and evacuation procedures, (4) encouraging the
             municipalities to prepare special contingency plans for flood
             events, (5) proposing that municipalities adopt strict flood
             damage ordinances in high hazard areas, (6) informing individual
             property owners of potential flood hazards and assisting them
             with flood mitigation techniques and (7) carrying out a marketing
             campaign for the purchase of flood insurance.
                  The study was conducted in each of Connecticut's 25 coastal
             communities, listed in Table 1. An inventory of flood-prone
             structures was developed by transferring Federal Emergency
             Management Agency's Flood Insurance Rate Maps and Flood Hazard
             Boundary Maps to mylar overlays of the 1980 aerial photographs
             (1:1,000). Structures and utilities located within the A (100-
             year flood), B (500-year flood), V (coastal flood) and F
             (riverine floodway) zones were counted and grouped. The results
             of the inventory are shown in Table 2.
                 A detailed muni -cipal assistance program for flood hazard
             mitigation was then initiated in the coastal towns. The detailed
             program developed a municipal profile documenting the community's
             history of flooding, existing flood studies, structural flood
             control projects, demographic and geographic information. An
             assessment of local zoning regulations and land-use practices was
             made to determine their compatibility with natural floodplain
             functions. In addition, an examination of the community's
             participation in the National Flood Insurance Program was made.
             The number of flood insurance policies in effect was compared
             with the inventory of flood-prone structures to determine
             additional flood insurance needs, and claims data was reviewed to
             delineate areas having repeated flooding problems. Finally,
             local flood forecasting, warning and response procedures were
             reviewed to assess their adequacy in addressing flood hazards.
                  The municipal assistance program additionally provided flood
             hazard mitigation assistance to owners of residential property
             located in coastal high hazard flood zones. A questionnaire was
             distributed to a representative sample of homeowners to assess
             the level of flood hazard awareness on the Connecticut shoreline
             and to provide information on flood preparedness planning, the
             National Flood Insurance Program and residential flood-proofing
           -techniques.

                                          -4-

             TABLE 1: CONNECTICUT TOWNS INCLUDED IN THE COASTAL FLOOD HAZARD
                       VULNERABILITY STUDY, STATE ASSISTANCE PROGRAM

             Branford

             Bridgeport

             Clinton

             Darien

             East Haven

             East Lyme

             Fairfield

             Greenwich

             Groton

             Guilford

             Madison

             Milford

             New Haven

             New London

             North Haven

             Norwalk

             Old Lyme

             Old Saybrook

             Stamford

             Stonington

             Stratford

             Waterford

             Westbrook

             West Haven

             Westport

                                           -5-

                                                                 TA*2

                                                       NATURAL RESOURCES CENTER

                                                  Municipal Flood Hazard Inventory
                                                     Preliminary Structure Counts

                                                             October 1982
             A (100-Yr. Flood Zone) B (500-Yr. Flood Zone)    V (Coastal Flood Zone) F (Riverine Floodway)         TOTAL
           1. Fairfield    2,477      West Haven     983      Milford        623      Bridgeport     101   Fairfield     3,136
           2. Stratford    2,004      Old Saybrook   858      Branford       391      East Haven     82    Stratford     2,754
           3. Stonington   1,385      New Haven      757      East Haven     353      Norwalk        74    Milford       2,281
                                                                                                                      2
          .4. Milford      1,248      Old Lyme       728      Madison  1     275      Stratford      63    West Haven    2,230
           5. Bridgeport   1,191      Madison        661      Westport   2   275      Stamford       30    old Saybrook  1,991
           6. Groton       1,069      East Haven     594      West Haven     246      West Haven     30    East Haven    1,845
           7. Norwalk      1,065      Fairfield      549      Stratford      245      Fairfield      10    Bridgeport 4  1,825
           8. West Haven     971      Westbrook      538      Old Saybrook   235      Westport       10    Stonington    1,822
           9. Old Saybrook   898      Branford       529      Greenwich      208      North Haven     7    New Ha9en     1,628
          10. East Haven     816      Bridgeport     506      Guilford       174      Darien          6    Groton        1,568
          11. New Haven      816      Groton         476      Norwalk        147      Greenwich       5    Norwalk       1,493
          12. Greenwich      810      Stratford      442      Old Lyme       132      New Haven       4    Old Lyme      1,468
          13. Clinton        683      Stonington     422      Darien         126      Guilford        3    Branford      1,429
          14. Old Lyme       607      Milford        410      Westbrook      126      Madison         3    Greenwich     1,272
          15. Westport       537      Clinton        408      Fairfield      100      Clinton         2    Clinton       1,188
          16. Branford       509      New London     336      Clinton         95      East Lyme       2    Madison       1,102
          17. Westbrook      419      East Lyme      298      New Haven       51      Groton          1    Westbrook     1,083
          18. Stamford       335      Darien         265      New London      48      Old Lyme        1    Westport      1,046
          19. Guilford       321      Greenwich      249      Bridgeport      27      Branford        0    Guilford        727
          20. Waterford      226      Waterford      248      Groton          22      Milford         0    Stamford        607
          21. East Lyme      224      Stamford       232      Stonington      15      New London      0    Darien          540
          22. Madison        163      Guilford       229      Waterford       12      Old Saybrook    0    East Lyme       529
          23. Darien         143,     Westport       224      Stamford        10      Stonington      0    Waterford       486
          24. North Haven    ill      Norwalk        207      East Lyme         5     Waterford       0    New London      455
          25. New London       71     North Haven     56      North Haven       0     Westbrook       0    North Haven     174
                           19,099                11,205                     3,941                    434               34,679-
          1Count does not include all islands.
          2Figures may be altered by reconstruction of sea wall.
          3Floodway maps not available.
          4Figures include Town of Stonington and Borough of Stonington.
          5Figures include Town of Groton, City of Groton, Groton Long Point Association and Noank Fire District.
          6Figures may be altered upon completion of revised wave-height studies.

                                                                                                                CJR
                                                                                                              10/25/82

                                     MUNICIPAL PROFILE

                      CONNECTICUT DEPARTMENT OF ENVIRONMENTAL PROTECTION

                               Municipal Flood Hazard Inventory

                               Profile for:        Milford, CT

                                Mailing Address:    City Hall
                                                    River Street
                                                    Milford, CT

                                Date:               July 1983

             1. Town Officials:

               a. Chief Elected Official: Alberta C. Jagoe

               b. Chief-Executive officer: Alberta C. Jagoe

               C. Public Works Director (Acting): Jake Donnelly

               d. Town Planner: Wade Pierce

               e. Building Inspector: William Slater

               f. Civil Preparedness Officer: William Healey
                      (Chief, Fire Department)

               g. Chairman, Flood and Erosion    Control Board: Edmund Colangelo

             2. Form of Government: Mayor, Board of Aldermen

             3. Regional Planni  ng Agency: South Central Connecticut
                                               96 Grove Street
                                              New Haven, CT 06510

             4. Total Municipal Land Area: 23.5 square miles

             5. Population:

               a. Permanent: 50,898 (1980 Census)

               b. Seasonal: 500 - 1000 maximum

               C. Number located in flood hazard zones:
                              2,863 in V zone
                                500 in Wepawaug River Flood Zone
                              31,363

                                            -7-

             6. General History of Flooding (Where and When):
                   Major flooding events include August 17-20, 1955 (50-year),
                   October 14-17, 1955 (25-year), September 18-21, 1938 and
                   June 4-7, 1982.
                     Flooding on the Housatonic River upstream from the
                   Conrail bridge has been caused by high tides and high river
                   flows acting either separately or coincidentally. High
                   Housatonic River flows historically have resulted from
                   either heavy rainfall alone or a combination of rainfall
                   and snowmelt throughout the Housatonic River basin.
                     Flooding in other Milford streams is also caused by high
                   flows and high tides acting either separately or together.
                   The principal damage resulting from high river flows is the
                   destruction and loss of man-made development in floodplain
                   and wetland areas adjacent to streams.
                     Extremely high tide levels induced by ocean storm surges
                   and wind-driven waves-accompanying hurricanes and coastal
                   storms are the principal causes of coastline flooding. The
                   principal damage in the tidal zone is the destruction and
                   loss of man-made development in the low coastal areas and
                   tidal estuaries adjacent to Long Island Sound.
                     The flooding of June 4-7, 1982 caused severe flooding
                   along the Wepawaug River. City Hall was flooded, causing
                   extensive damage to offices and city records located in the
                   basement. Commercial establishments located on the
                   easterly side of River and Daniel Streets, just downstream
                   from City Hall, sustained flood damages. Severe flooding
                   damages were sustained at the Boston Post Road bridge over
                   the Wepawaug River, extending northward approximately one
                   half mile. Lastly, approximately sixty structures,
                   residential and commercial, between the Conecticut Turnpike
                   and Bridge Street were inundated by flooding.

             7. Flood Studies.:

                 Date          Author/Sponsoring Agency        Description

               In Progress       USDA/soil conservation Central Coastal
                                  Service                  Cooperative River
                                                           Basin Study

               In Progress       U.S. Army Corps of En- Section 205 Reconnais-
                                  gineers, New England     sance Study,
                                  Division                 Wepawaug River

               In Progress       Diversified              Great Creek Study
                                  Technologies

               In Progress       Department of Environ- Milford shoreline
                                  mental Protection

                                           -8-

                on-going          Department of            DOT Study 83-149
                                   Transportation           Quirk Pond, Woodmont
                                                            Road

                February 1982     R.M.Field Associates,    Connecticut CoasE-a-=
                                   Inc./DEP Coastal Area    Flood Hazard Area
                                   Management Program       Study

               March 1978        U.S.Army Corps of En-     Flood Insurance Study
                                   gineers, New England
                                   Division/U.S.Dept of
                                   Housing & Urban Devel-
                                   opment, Federal Insurance
                                   Administration

               July 1976         U.S. Army Corps of En- Connecticut Coastline
                                   gineers, New England     Study - Effects of
                                   Division/DEP Coastal     Coastal Storms
                                   Area Management Program

             8. Existing Flood Control Structures:

                   Type          No.       Location           Description

                  Breakwater    I        Off Milford Point

                  Seawall       1        Morningside

             9. Flood Control Projects, Proposed or in Progress:

                   Description                    Target Date of Completion

                  1,680-ft. revetment -                    In progress
                     Burwells and Fairview beaches

             10. Flood Warning System:

               a. Description: Sirens stationed throughout the city and
                                   local radio stations

               b. Operated and Maintained by: Fire Department Fire Alarm
                                                   Division

                                            -9-

             11. Status of Emergency Operations Plan:

               a. Title: "Milford Plan For Civil Preparedness, Civil Defense
                             or Disaster Emergencies",

               b. Date of latest revision: April 26, 1980

               c. Specific flood annexes: Natural Disaster Plan

             12. Inventory of Structures Located in Flood Hazard Zones
                    (Summary):

                             Residential    Commercial/Industrial      TOTAL

                   A Zone:     1,203                 45                1,248

                   B Zone:       403                  7                  410

                   V Zone:       615                  8                  623

                   Floodway:*      0                  0                    0

                   TOTAL:      2,221                 @T-o              2,281

                   *No floodway maps available

               b. Municipal and other public ownership in flood hazard
                      zones:
                   State of Connecticut: Silver Sands State Reserve (293 acres)
                   State of Connecticut: Wheeler Wildlife Area-
                   State of Connecticut: Charles Island
                   City of Milford: City Beach (adjacent to Silver Sands)

             13.   National Flood Insurance Program Status:

                   a. Date entered emergency program:

                   b. Date entered regular program: September 29, 1978

             14. Flood Insurance Policy Information: Month Ending
                                                           March 31, 1982

                                 NUMBER OF POLICIES (3/31/82)

                          New                   Renewal
                  Dwelling   Other        Dwelling    Other      TOTAL POLICIES

                   121        12           .749        106            988

                                            -10-

                                     AMOUNT OF INSURANCE (in whole dollars)

                   Dwellin        Other             TOTAL          WRITTEN PREMIUM

                 $36,672,300    $9,621,500       $46,293,800        $140,220.54

                                    POLICY CLAIMS PAYMENTS (12/31/82)

                            YEAR OF PAYMENT                   YEAR OF FLOOD
                     Year   Payments      Amount Paid     Payments      Amount Paid

                     1977        0                0.00        5            8,140.40

                     1978      39            52,457.14      37            45,913.29

                     1979      31@        $102,146.21       31          $117,269.21

                     1980      43         $166,324.29       143         $745,312.11

                     1981      103        $595,707.37         0         $      0.00

                     1982      66         $432,232.60       66          $432,232.60

             15. Drainage Basins in which Municipality      Located:

                        Basin Number                     Basin Name

                           5000                    South Central Shoreline

                           5306                    Indian River

                           5307                    Wepawaug River

                           6000                    Housatonic River

             16. Watercourses:

                             Name                               Basin Number

                         Calf Pen Meadow Creek                      5000

                         Oyster River                               5000

                         Indian River                               5306

                         Wepawaug River                             5307

                         Stubby Plain Brook                         5307

                         Beaver Brook                               6000

                         Great Creek                                6000

                         Housatonic River                           6000

                         Turkey Hill Brook                          6000

             17. Lakes and Reservoirs (Impoundments):

                         Name                Watercourse               Basin Number

                     Quirks Pond           Oyster River tributary         5000

                     Clark Pond            Indian River                   5306

                     Indian Lake           Indian River                   5306

                     Rose Mill Pond        Indian River                   5306

                     Nigs Pond                                            5307

                     Lily Pond             Beaver Brook tributary         6000

                     Milford Reservoir     Beaver Brook                   6000

             18. Wetlands:

               a. Location        Basin Number            of Acres (if available)

               b. Wetlands    Regulatory Authority: State of Connecticut

             19. Coastline:

               a. Number of Miles: 19.3

               b. Percent of developed coastline (beachfront housing): 73%

                                             -12-

             20. Coastal and Riverine Structures:

               a. Dams
                                    Dam or
                   NRC Dam     Impoundment Name    Watercourse        Ownership
                     084-01      Clark Pond       Indian River         N/A

                     084-02      West Pond        Housatonic River     N/A
                                                   tributary

                     084-03      Milford          Beaver Brook         Utility
                                   Reservoir

                     084-04      City Pond        Wepawaug River       Municipal

                     084-05      Rose Mill Pond   Indian River         Private

                     084-06      Quirks Pond      Calf Pen Meadow      N/A
                                                   Brook

                     084-07      Indian Lake      Indian River         Private

                     084-08      Mondo Pond       Beaver Brook         Utility
                                                   tributary
                     084-09      Wepawaug Pond    Wepawaug River       N/A

                     084-10      Beaver Pond      Beaver Brook         Municipal

                     084-11      Unnamed          Wepawaug River       Municipal

                     084-12      Turkey Pond      Turkey Hill Brook    N/A
                     084-13      New Pond         Housatonic River     N/A
                                                   tributary
                     084-14      Herbert Pond     Housatonic River     N/A
                                                   tributary

                     084-15      Unnamed          Wepawaug River       Private

               b. Bridges:

                   Road Name                Watercourse            Responsibility

                     Route 1           Housatonic River               State
                     Route I           Beaver Brook                   State
                     Route 1           Wepawaug River                 State
                     Route 15          Housatonic River               State
                     Route 95          Wepawaug River                 State
                     Route 95          Indian River                   State
                     Route 162         Wepawaug River                 State

                                            -13-

                    Route 162           Indian River                  State
                    Route 162           Turtle Creek                  State
                    Route 736           Calf Pen Meadow Creek         State
                    Route 736           Gulf Pond                     State
                    Route 747           Beaver Brook                  State
                    Flax Mill  Lane     Wepawaug River                Municipal
                    Gulf Street         Gulf Pond                     Municipal
                    Maple Street        Wepawaug River                Municipal
                    River Street        Wepawaug River                Municipal
                    Walnut Street       Wepawaug River                Municipal
                    West Main Street    Wepawaug River                Municipal
                    Bridge Street       Wepawaug River                Municipal

               c. Jetties and Groins:

                         Number                 Location

                          2                   Cedar Beach
                          5                   Wildemere, Walnut & Myrtle Beaches
                         12                   Gulf Beach'
                          4                   Bayview Beach
                          8                   Pond Point Beach
                         20                   Point Beach
                         18                   Fairview/Burwells Beach
                          2                   Milford Harbor
                          3                   Welches Point

               d. Piers   and Docks:

                         Number             Location

                          13             Housatonic River
                           3             Housatonic River
                           6             Milford Harbor

             21. Ports/marinas:

               a. Name                                Address

                Commodore Marina, Inc.            164 Rogers Avenue

                Flagship Marina, Inc.             40 Bridgeport Avenue

                Milford Harbor Marina             1 High Street
                  & Boat Works, Inc.

                Milford Yacht Club
        "OF     Sea Frolic Yacht Club

                Spencer's Marina, Inc.            44 Rose Street

                                           -14-

                Town Dock & Landing Ramp

                Valley Yacht Club

                Wepawaug Yacht Club

                The Chandlery                     1 High Street

               b. Name and Address of Harbor Master:     Allen-G. Berrien
                                                         Milford Boat Works
                                                         1 High Street
                                                         Milford, CT

             22. Utilities:

               a. Names of Utility Companies Serving the Town:
                     United Illuminating Co.
                     Southern New England Telephone Co.
                     New Haven Gas Co.

               b. Facilities Located in Flood Zones (Solid Waste Disposal,
                     Water Treatment, Sewage Treatment, Power Generation):

                  Type                    Flood Zone            Floodproofed?
                                                          If so, to what extent?

                Sewage Treatment Plant     100 year         No, but fairly well
                  (Beaver Brook)                              elevated

               *Sewage Treatment   Plant   100 year
                  (Great Creek)

               *Sewage Treatment   Plant   100 year
                  (Milford Harbor)

               *Sewage Treatment Plant     100 year
                  (Indian River)

                        *To be put out  of operation in 2 or 3 years upon
                         completion of  new Sewage Treatment Plant on
                         Housatonic River

             23. Water Supply:

               a. Name and Address of Water Utility Serving the Town:

                    South Central Connecticut Regional Water Authority

                                           -15-

                b. Public Water Supply Reservoirs:

                          Name                          Watercourse

                Milford Reservoir, a.k.a.             Beaver Brook
                 Beaver Brook Reservoir
                 (Emergency Reservoir)

                C. Public Water Supply Wells:

                      Name                    Location             Comments

                      NONE

                d. Estimated # of private wells: 300-500 maximum (north
                    I  of Boston Post Road)

                e. Potential effects of flooding on water supply:

             24. Storm Water Drainage System:

                a. Written Plan:    -Yes        X no

             25. Floodplain Zoning and Floodplain Ordinances

            I. Mapping

                  Flood plains shown on zoning
             (X)  Flood plains not shown on zoning map
             W    Flood insurance rate maps used (Referenced in zoning
                                                    text)
             W    Flood hazard boundary maps used (Referenced in zoning
                                                     text)
                  Other

         II. Zoning Text (Z) and Ordinance Text (0)

             A. Floodway

             (Z) Prohibited uses: encroachments which would increase
                                   tlood levels during base flood discharge

             (Z) Permitted uses: all; subject to standards and pro-
                                  visions for flood hazard reduction
                                  specified in zoning text

             (Z) Special Exceptions: mobile homes in an existing mobile home
                                      park or existing mobile home subdivision

                                             -16-

             B. Floodway Fringe

             I. Base flood elevations and flood hazard factors not
                   determined (All A Zones)
             (Z) Prohibited uses: -9. any uses which would adversely affect
                                  the capacity of drainage facilities, -
                                  increase flood damages to other lands,
                                  or accelerate erosion; storage of
                                  injurious materials; open or outdoor
                                  storage of any material or equipment

             (Z) Permitted uses:  all; subject to standards and provis-
                                 ions tor flood hazard reduction spe-
                                 cified in zoning text

                 Special Exceptions:

             2. Base flood elevations and @flood hazard factors
                   determined (Al-A30, Vl-V30 Zones)

             (Z) Prohibited uses: none

             M Permitted uses: all; residential structures must meet
                                 lowest floor elevation requirement and
                                 be certified; non-residential may either
                                 meet lowest floor elevation requirement
                                 or be floodproofed so that walls below
                                 the base flood level are substantially
                                 impermeable; be constructed to resist h@7-
                                 drostaFic -1oads and effects of buoyancy;
                                 and be certified

             (Z) Special Exceptions: mobile homes subject to additional
                                     regulation

             C. Coastal Areas

             M Prohibited uses: alteration of sand dunes which would
                                  increase potential flood damage

             W Permitted uses: all; must be elevated, located landward
                                 ot the reach of the me@E -high tide, and
                                 certifTe-d

             (Z) Special Exceptions: mobile homes in an existing mobile home
                                    park or an  existing mobile home
                                     subdivision

       III. Procedural Provisions
       AD A. Permit Requirements

             W Yes        No Provides a separate permitting procedure

                                           -17-

                               for all new construction and substantial
                               alteration in flood zones
                 Yes (X)  No   Provides for uses "as of right"
             (X) Yes      No   Specifies permit application procedures
             W   Yes      No   Provides standards for permit approval
             ( ) Other:

             B.  Variance Requirements

             W   Yes      No   Provides a separate permitting procedure
                               for variances in flood zones
             (X) Yes      No   Specifies conditions for application
                               submittal
             (X) Yes      No   Specifies standards for permit approval
             ( ) other

             C.  Certificate-of Zoning Compliance

             (X) Required       Not Required

             D.  Ordinance Amendment Procedures

             (X) Specified ( ) Not Specified

             E.  Appeal Procedures

             (X) Specified       Not Specified

        IV. Miscellaneous

             A. Enforcement Provision - Penalties  for nonconformance

             (X) Yes      No-Daily fines for noncompliance

             B.  Interpretive Provisions

             W   Yes ( ) No    Severability clause
             (X) Yes ( ) No    Liability disclaimer
             (X) Yes ( ) No    Purpose and findings of fact
             W   Yes      No   Definitions

             C.  Regulated Areas

             W   100-year (1%) flood (All A Zones)
                 100-year flood for most uses, but 500-year (.2%) flood
                  for critical actions
             (X) Coastal Areas
                 Other

          V. Comments/Recommendations

                 Flood Plain District is a class of district in addition to
              and overlapping one or more of the other districts.
                Milford's floodplain zoning regulations are excellent
              guidelines for the city's future floodplain management. By
              etailing mandatory floodproofing measures, construction
              specifications in flood zones, and standards for granting
              permits or variances, the regulations facilitate administrative
              and court review and provide certainty and predictability in the
              review process.
                The only recommendation made concerns critical uses in flood
              zones. While judicious use of the 100 year flood standard as a
              minimum for flood hazard area regulation should be continued,
              critical facilities should be protected to the 500 year flood
              elevation. Critical facilities include disaster, fire and
              police centers, hospitals, prisons, facilities for the elderly
              and handicapped, fuel and hazardous or toxic materials storage.
              These facilities pose unique, serious threats to public health
              and safety when exposed to flooding, and the town may wish to
              consider banning such uses from the floodway and flood fringe
              and coastal high hazard flood areas.

                                         -19-

             SOURCES:

             Atlas of the Public Water Supply Sources and Drainage Basins of
                  Connecticut, Natural Resources Center, Department of
                  Environmental Protection, Department of Environmental
                  Protection Bulletin No. 4, June 1982.

             City of Milford, Connecticut Municipal Coastal Program Phase II,
                  as recommended by Milford Coastal Task Force, SeptemVe-r
                  1982, Raymond, Parish, Pine & Weiner, Inc., Hamden, CT.

             Coastal Recreation, Planning Report No. 25, prepared for the Department of
                  Environment@i_l Protection.Coastal Area Management Program by
                  Margaret N. Schneider, March 1978.

             Connecticut Coastal Flood Hazard Area Study, submitted to
                  State of Connecticut Department of Environmental Protec-
                  tion Coastal Area Management Program, Hartford, CT,
                  prepared by Ralph M. Field Associates, Inc., Westport, CT.,
                  February, 1982.

             Connecticut Dams, State of Connecticut, Natural Resources Center,
                  Department of Environmental Protection,. Connecticut
                  Geological and Natural History Survey, 1983, Scale
                  1:125,000.

             Connecticut State Register and Manual 1982, Secretary of the
                  State, Hartford, CT, 1982.

             Digest of Federal Disaster Assistance Programs, Federal Emergency
                  Management Agency, Disaster Response and Recovery, Second
                  Edition, October 1979.

             Directory of Boating Facilities, Office of Planning and
                  Coordination/Coastal Management, Department of Environmental
                  Protection, January 1983.

             Flood Hazard Mitigation A Manual for Connecticut Municipalities,
                  Department of Environmental Protection, Natural Resources
                  Center, Hartford, CT, Water Planning Report No. 4, September
                  1981.

             Flood Insurance Rate Maps, City of Milford, Connecticut, New
       @10        Haven County, Scale 1:1,000; Community Panel No. 090082,
                  U.S. Department of Housing and Urban Development, Federal
                  Insurance Administration, Effective September 29, 1978.

                                         -20-

             Flood Insurance stud , City of Milford, CT, New Haven County#
                  U.S. Army Corps ot Engineers, New England Division, for the
                  Federal Insurance Administration, U.S. Department of Housing
                  and Urban Development, Contract No. IAA-4-15-72, March 1978.

             Flood Studies of Connecticut, prepared by the Natural Resources
                  Center, Connecticut Department of Environmental Protection;
                  Compiled, Abstracted and Updated by George Dunn/Allan
                  Williams (April 1979) from an original text by Anne Simko
                  (January 1978).

             Gazateer of Natural Drainage Areas of Streams and Water Bodies
                  Within the State of Connecticut, Mendall P. Thomas, U.S.
                  Geological Survey in cooperation with the Connecticut
                  Department of Environmental Protection, Connecticut
                  Department of Environmental Protection Bulletin No. 1, 1972.

             Guide for Flood and Flash Flood Preparedness Planning, U.S.
                  Department of Commerce, National Oceanic and Atmospheric
                  Administration, National Weather Service, Silver Spring,
                  M.D., February 1977.

             "In-Force Policies by State and Community", Flood Insurance
                  Program (3/31/82), Federal Emergency Management Agency
                  Region I, Boston, MA.

             Interagency Flood Hazard Mitigation Report, in response to the
                  June 14, 1982 Disaster Declaration (FEMA 661-DR-CT) covering
                  all eight counties in Connecticut, prepared by the Region I
                  Interagency Flood Hazard Mitigation Team.

             "Local Roads and Bridge Functions," Bureau of Highways, Division
                  of Engineering Services, Engineering Data and Inventory
                  Section, Connecticut Department of Transportation, 1980
                  Edition.

             "Milford Plan for Civil Preparedness, Civil Defense or Disaster
                  Emergencies," Effective February 28, 1977, updated April
                  26, 1980.

             Municipal Officials, City of Milford: interviews and conversa-
                  tions with Alberta Jagoe, Edmund Colangelo, Wade Pierce and
                  William Healey, March 25, 1982, March 31, 1983, and July
                  13, 1983.

                                          -21-

             Natural Drainage Basins Maps, Scale 1:24,000, Natural Resources
                   Center, Connecticut Department of Environmental Protection,
                   1981.

             Natural Resources Information Directory 1982, Natural Resources
                   Center, State Geological and Natural History Survey,
                   Connecticut Department of Environmental Protection, prepared
                   by Elliott C. Bronson.

             1980 Aerial Photographs, State of Connecticut, Scale 1:12,000,
                   March 1980.

             1980  Census of Population and Housing, Connecticut Census Data
                   Center, Office of Policy and Management, April 16, 1981.

             Policy Claims Payments by Year of Payment and Year of Flood
                   (12/31/82), Federal Emergency Management Agency Region I,
                   Boston, MA.

             State Highway Bridge Log, Bureau of Highways, Division of
                   Engineering Services, Engineering Data and Inventory
                   Section, Connecticut Department of Transportation.

             U.S.G.S. 7.5-minute Series Topographic Maps, Scale 1:24,000,
                   contour interval 10 ft: Ansonia, Connecticut (1964),
                   Photorevised (1972); Milford, Connecticut (1960),
                   Photorevised (1971); Woodmont, Connecticut (1960), Photo-
                   revised (1971).

             Zoning Regulations, Milford, Connecticut, October 1973, Revised
                   to June 1982.

                                            -22-

                        COASTAL PROPERTY HOMEOWNER'S QUESTIONNAIRE:

                                  TABULATION AND ANALYSIS

                                              COASTAL PROPERTY H0;-iE0[-.71ER-S QUESTIONNAIRE
                     Location of Property                                          (Town)

                                                                                                    Circle Best Answer
                     FLOOD HAZARD AWARENESS

                      1. Do you a) own                                                        1.    a    b    c  d
                                  b) rent
                                  c) manage
                                  d) other

                      2. Is this your permanent address?                                      2.    yes       no
                             If 'no', what percent of your time is spent here?
                             In what community is your permanent address?

                      3. Are you aware that your home/cottage is located within               3.    yes       no
                             a coastal high hazard flood zone?

                      4.  Do you feel that the risk of injury and/or property                 4.    yes       no
                             damag& to which you are exposed is an acceptabl.e
                             price to pay for living on the Connecticut coastline?

                      5.  Have you experienced flooding at your present location?             5.    yes       no
                             If 'yes', in what year?
                             Describe the damage.
                             Provide a dollar,estimate of the damage.

                     FLOOD PREPAREDNESS

                      6. Are you aware that your homeowner's insurance does not               6.    yes       no
                             cover losses related to flooding?

                          Your community is partitipating in the National Flood
                             Insurance Program, which is a federal program created
                             to reduce annual flood losses through better planning
                             and to provide property owners with the opportunity
                             to purchase flood insurance guaranteed by the federal
                             government. Are you:                                             7. a       b    c

                             a) insured to replacement value of the building and
                                  contents?
                             b) insured to less than full replacement value?
                             c) not insured?

                      8. If your home was severely damaged or destroyed by a
                             flood, could you afford to rebuild according to the
                             more stringent building codes applicable to new
                             construction in flood zones?                                     8. a       b    c

                             a) could afford to rebuild at same location.
                             b) could afford to rebuild outside of flood zone.
                             c) could not afford to rebuild.

                      9. Have you determined your lowest flood elevation in                   9.    yes       no
                             relation to the probability and extent that your
                             home is likely to be flooded?

                     10.  Have you learned alternate evacuation routes from                  10.    yes       no
                             your home and/or place of business to high, safe
                             ground?
                     11.  In the even't of a flood, do you    know where you can             11.    yes       no
                             obtain medical help and where    emergency shelter is
                             located?

                     1-2- Are --you- aware of your cm-ToTty-s fl'bocs preparedness                  yes       no
                             plans?
                     13. In the event of a major flood, who would you expect to
                             pay for disaster response and recovery costs?                   13.    a. b    c   d
                             a) federal government
                             b) state government
                             c)'mbnicipal government
                             d) yourself

                                                            CONTINUED ON BACK

                                        PUBLIC AWARENESS

                  The Coastal Property Homeowner's Questionnaire section of the

             Municipal Assistance Program was designed to meet two needs: 1) assess

             the degree of flood hazard awareness and preparedness of Connecticut's

             coastline residents, and 2) provide information on floodplain

             management, flood preparedness planning, residential floodproofing

             techniques, emergency operationso cleanup and repair, and the National

             Flood Insurance Program.

             I. Flood Hazard Awareness and Preparedness Assessment

             Data Accumulation

                 Utilizing FEMA's Flood Insurance Rate Maps for the City of

             Milford, a list of roads that occur partially or totally within the A

             (100-year) and V (Coastal) flood zones was'compiled. Milford's tax

             assessment records were then used to collect the names and addresses

             of one hundred randomly selected individuals for the questionnaire

             mailing distribution list. (A list of streets to which the

             questionnaire was distributed is shown in Table 3). Included with the

             questionnaire was a cover letter which explained the Municipal

             Assistance Program and the purpose of the questionnaire, and a self-

             addressed, stamped envelope to encourage questionnaire returns. (A

             copy of the questionnaire and cover letter is included in this

             section).

             Data Processing

                 Each returned questionnaire was given its respective town code

             and individual identification number. The information each contained

             was encoded and transferred to a key-punch computer card. The entire

                                    -24-

             deck was then run through a comprehensive Statistical Analysis System
             (SAS) program. The program is capable of computing individual

             frequency statistics as well as cross-comparison statistics; the

             results of which are displayed in tabular and histogram chart form.

             Statistical Analysis--City of Milford

                  The questionnaire statistical analysis consisted of correlating
             variables (individual questions) to compare the level of public flood

             hazard awareness with the application of flood preparedness practices.

             The subsequent results assisted in the determination of problem areas

             that we recommend be addressed in order to help alleviate any

             unnecessary future expenditures in the form of life, property loss,

             and disaster relief aid.

                  The Natural Resources Center received thirty questionnaires from

             Milford. (A summary of responses is shown in Table 4). Due to the

             fact that the sample size is small in relation to the city's 1980

             flood zone residential structure inventory (2,221), the statistical

             results must be regarded with discretion. The results generally

             indicated the following:

                  --Seventy percent of the individuals who responded to the

             questionnaire had experienced flooding in the past at their present

             location.

                  --Even though all (one hundred percent) of the respondents are

             aware of their existence within a high hazard flood zone, eighty-three

             percent feel that the risks imposed are an acceptable price to pay for

             living along the Connecticut shoreline.

                  --Ninety-seven percent of the respondents are aware that their

             homeowner's insurance does not cover losses related to flooding but

                                     -25-

             only forty-seven percent are insured to full replacement value of

             their building and contents.

                  --A significant number of individuals (seventeen percent) are

             unaware of alternate evacuation routes from their home and/or place of

             business to high, safe ground in the event of a flood.
                  --Ten percent of the respondents do not know where to obtain

             medical help or where emergency shelter is located.
                  --Approximately one half of the respondents (forty-seven percent)

             are unaware of any community flood preparedness_plans.

                  --Although eighty-eight percent of the respondents are prepared

             to take precautionary measures in the event of a flood, only a small
             number (thirty percent) have implemented the more secure floodproofing

             measures to protect their property from potential flooding.

             II. Information Provisions

             Questionnaire Mail Package

                  Contained in the questionnaire mail package that was sent to the

             one hundred flood zone inhabitants were three pamphlets published by

             FEMA. One pamphlet provided suggestions to help minimize the loss of
             life and property in the event of a flood while the other two provided

             information on the National Flood Insurance Program. As of March 31,

             1982, Milford had 988 flood insurance policies in effect. Based on

             the 1980 flood zone residential inventory of 2,221 structures, there

             is a forty-four percent coverage. One of the goals of the municipal

             Assistance Program is to carry out a marketing campaign for the

             purchase of flood insurance. Due to the fact that the federal

             government has placed a greater responsibility upon the state and
             local governments to pay for disaster response and recovery costs in

                                     -26-

             the event of a major flood and the fact that individual and family
             grant assistance has been reduced, we believe it would be beneficial

             for all parties if there were an increase in the number of

             policyholders in the City of Milford.

             Additional Information Option

                  Included on the back of each questionnaire was an option that

             gave interested individuals the opportunity to request more detailed

             information on flood preparedness, floodproofing, emergency actions,
             and cleanup and repair. The booklet and booklet excerpts sent to each
                             I
             respondent were written by several state and federal agencies which

             are involved with the administration of proper floodplain management

             practices.

             Flood Information Exhibit

                  In order to broaden our scope of coverage to those individuals

             who live within a flood zone but did not receive a questionnaire or

             the opportunity to request additional information, the Natural

             Resources Center designed a flood mitigation information exhibit. The

             exhibit includes all of the material that is provided through the

             questionnaire plus three pamphlets and two booklets which cover

             additional subjects such as hurricane safety tips, coastal home

             construction considerations, and floodproofing regulations. This

             exhibit is best suited for display in a public building (public

             library, town hall) and is available to all of the municipalities that

             are included in the Municipal Assistance Program.

             III. Conclusion

                 An analysis of the cross-comparison statistics indicated that the

             individuals who showed deficiency in overall flood awareness and

                                     -27-

             preparedness were those who had not experienced flooding in the past.

             In addition, the level of public interest regarding flood preparedness

             is high in Milford, as we received many requests for additional

             information. Therefore, the development of an effective public

             information campaign in the City of Milford would not only help to
             satisfy the present high interest regarding flood hazard mitigation

             but would also serve to increase the level of flood awareness and

             preparedness of the individuals who are presently unaware that they

             live in this potentially hazardous area.

                                    -28-

                                              TABLE 3

                              QUESTIONNAIRE DISTRIBUTION (by street)

                                          City of Milford

             1. Ann Street

             2. Bittersweet Avenue

             3. Blair Street

             4. Bridgewater Avenue

             5. Caroline Street

             6. Chetwood. Street

             7. Cooper Avenue

             8. Derby Avenue

             9. Marsh Street

            10. Melba Street

            11. Point Beach Drive

            12. Sand Street

            13. Seaview Avenue

            14. Virginia Street

            15. Waterbury Avenue

                                           -29-

                                            TABLE 4

             SUMMARY OF RESPONSES: COASTAL PROPERTY HOMEOWNERS' QUESTIONNAIRE

                                        CITY OF MILFORD

            30 Questionnaires Returned/100 Mailed Out = 30% Response Rate

              I. Flood Hazard Awareness

               Q-1 Flood Zone Property Status          Choice Frequency Percent

                  Do you     a) own                        a        30        100.0
                             b) rent                       b        0          0.0
                             c) manage                     c        0          0.0
                             d) other                      d        0          0.0
                             *) no response                         0          0.0

               Q.2 Permanent    Address

                  Is this your  permanent address?          yes     27         90.0
                                                             no     3          10.0
                                                                    0           0.0

               Q.3 High Hazard Flood Zone Awareness

                  Are you aware that your home/             yes     30         100.0
                   cottage is located within a high          no      0          0.0
                   hazard flood zone?                                0          0.0

               Q.4 Risk of Injury, Property Acceptable

                  Do you feel that the risk of injury       yes     25         83.3
                   and/or property damage to which you       no      5         16.7
                   are exposed is an acceptable price                0          0.0
                   to pay for living on the Connecti-
                   cut coastline?

               Q.5 Experienced Flooding

                  Have you experienced flooding at          yes     21         70.0
                   your present location?                    no      9         30.0
                                                                     0          0.0

           II. Flood Preparedness

               Q-6 Homeowner's Insurance Limitations

                  Are you aware that your homeowner's       yes     29         96.7
                   insurance does not cover losses           no      1          3.3
                   related to flooding?                              0          0.0

                                                -30-

                 Q.7 Building and Contents Insurance
                           Status

                   Your community is participating in the National Flood Insur-
                    ance Program, which is a federal program created to reduce
                    annual flood losses through better planning and to provide
                    property owners with the opportunity to purchase flood in-
                    surance guaranteed by the federal government. Are you
                    a)   insured to replacement value of      a        14          46.7
                         the building and contents?

                    b)   insured to less than full            b        13          43.3
                         replacement value?

                    c)   not insured?                         c         2          6.7

                         no response                                    1          3.3

                 Q.8 Afford to Rebuild

                   If your home was severely' damaged or destroyed by     a flood,
                    could you afford to rebuild according to the more stringent
                    building codes applicable to new construction in flood
                    zones?

                    a)   could afford to rebuild at same      a        16          53.3
                         location

                    b)   could afford to rebuild outside      b         1          3.3
                         of flood zone

                    c)   could not afford to rebuild          c         8          26.7

                    d)   no response                                    5          16.7

                 Q.9 Determine Lowest Flood Elevation

                   Have you determined your lowest flood      yes      19          63.3
                    elevation in relation to the prob-         no       8          26.7
                    ability and extent that your home is                3          10.0
                    likely to be flooded?

                Q10. Learn Alternate Evacuation Routes

                   Have you learned alternate evacuation yes           21          70.0
                    routes from your home and/or place of no            5          16.7
                    business to high, safe ground?                      4          13.3

                Q.11 Know Where to Obtain Help
                          and Shelter

                   In the event of a flood, do you know       yes      27          90.0
                    where you can obtain medical help and no            3          10.0
                    where emergency shelter is located?                 0          0.0

                                                  -31-

               Q.12 Aware of Town Preparedness

                  Are you aware of your community's         yes        14       46.7
                   flood preparedness plans?                  no       14       46.7
                                                                       2         6.6

               Q13 Who Should Pay

                  In the event of a major flood, who would you expect to pay
                   for disaster response and recovery costs?

                   a)  federal government                   a          14       46.7
                   b)  state government                     ab         3        10.0
                   c)  municipal government                 abc        1         3.3
                   d)  yourself                             abcd       2         6.7
                       no response                          ad         2         6.7
                                                            b          3        10.0
                                                            bd         1         3.3
                                                            c          2         6.7
                                                            d          1         3.3
                                                                       1         3.3
               Q14A-14G

                  Recent changes in federal legislation have placed     greater
                   responsibility on the homeowner to take first acitons to
                   reduce damage before and immediately following a flood.
                   Are you prepared to take the following precautionary
                   measures in the event of a flood?

               Q.14A Turn Off Utilities                     yes        28       93.3
                                                              no       2         6.7
                                                                       0         0.0

               Q.14B Close Gas, Water Valves                yes        25       83.3
                                                              no       5        16.7
                                                                       0         0.0

               Q.14C Mo ve Valuable Possessions

                  Moving valuable possessions (furni-       yes        26       86.7
                   ture, small appliances, jewelry,           no       3        10.0
                   artwork, coins, etc.) to upper                      1         3.3
                   floors or removing them from the
                   building

               Q-14D Secure or Bring Possessions Inside yes            29       96.7
                                                              no       1         3.3
                                                                       0         0.0

               Q.14E Fill Bathtubs, Sinks With Clean Water

                  Filling bathtubs and sinks with clean yes            29     96.7
                   water in case regular supplies are         no       1        3.3
                   contaminated                                        0        0.0

                                                -32-

               Q.14F Board-Up Windows                          yes      23        .76.7
                                                                 no       6       20.0
                                                                          1        3.3

               Q.14G Open Basement Windows - Lower Pressure

                  Leaving basement windows and doors           yes      24        80.0
                   open to prevent pressure build-up             no       4       13.3
                                                                          2        6.7

               Q15A-15E

                  Have you implemented one or more of the following flood-
                   proofing measures to protect your property from potential
                   flooding?

               Q.15A Relocate or Elevate Basement Utilities

                  Relocating or elevating basement util- yes            16        53.3
                   ities (furnace, hot water heater, el-          no      6       20.0
                   ectrical panel, water and gas meters) will
                   above flood elevations                    consider     1        3.3
                                                                          7       53.3

               Q.15B Raise House Above Flood Elevation

                  Raising the entire house above flood         yes        5       16.7
                   elevation on a new or extended               no      21        70.0
                   foundation                                  will
                                                            consider      3       10.0
                                                                          1        3.3

               Q.15C Rearrange or Protect Damageable Property

                  Rearranging or protecting damageable         yes      19        63.3
                   property within an existing structure no               a       26.7
                                                               will
                                                            consider      2        6.7
                                                                          1        3.3

               Q.15D Install Temporary or Permanent            yes        9       30.0
                         Closures                               no      13        43.3
                                                               will
                                                            consider      3       10.0
                                                                          5       16.7

               Q.15E Construct Small Walls or Dikes            yes      12        40.0
                                                                no      14        46.7
                                                               will
                                                            consider      1        3.3
                                                                          3       10.0

                                                 -33-

                                STATE OF CONNECTICUT
                       DEPARTMENT OF ENVIRONMENTAL PROTECTION

                                                    June 1982

               Dear Connecticut Resident:

                    Your residence on the Connecticut coastline enables you to fully appreciate
               and enjoy the vast resources of Long Island Sound and the coastal area. While
               the Sound provides a medium for.recreational activities, it is also the source
               of a serious threat to shoreline occupants: coastal storm flooding. Whether
               the-shore is the site of your permanent residence or a second home, it is im-
               perative that you become aware of potential flood hazards to ensure your
               family's safety. The enclosed questionnaire and brochures provide important
               information on measures you can take to protect your home and property from
               future flooding. Please take time now to read and complete the questionnaire.

                   Connecticut has not experienced a major, statewide flood in a number of
               years; yet, it is extremely vulnerable to flood hazards. An inventory was
               recently conducted to determine the number of residential, commercial and in-
               dustrial structures occurring within riverine and coastal flood zones in 20
               coastal towns. Although 30,000 structures were found to be located within flood
               zones, only 8,000 flood insurance policies are presently in effect. Seventy-
               three percent of the structures located within flood zones are not insured
               against flooding. In the absence of a major coastal storm, flo@_d_insurance
               claims for those same 20 towns still approached $6 million between the years
               1977-1981. Furthermore, recent changes in legislation will shift a larger
               percentage of flood disaster recovery costs.from,the federal to state and local-
               governments. Clearly, preventive measures must be taken now to reduce the
               effects of a potential disaster.

                   The most effective flood preparedness actions rest on the efforts made by
               the individual property owners of the coastal flood zones. While it is not
               possible to completely eliminate the danger of flooding to homes in coastal and
               low-lying areas, it is possible to reduce the cost of flood damage to your
               property through flood preparedness planning. 'The enclosed questionnaire was
               developed by the Natural Resources Center as part of its Flood Plain Management
               Municipal Assistance Program. Distributed to a representative sample of coast-
               line residents, the questionnaire seeks to assess residents' flood hazard
               awareness and provide information on flood preparedness planning, the National
               Flood Insurance Program, and residential flood-proofing techniques. Please
               complete and return the questionnaire in the enclosed envelope; your efforts
               will play an important role in improving the state's flood plain management
               program. Any questions regarding'the questionnaire or the state's rofe in flood
               plain management should be directed to the Natural Resources Center at 566--3540.

                                                   Sincerely yours,

                                                   Cyl        Rummel
                                                   Project Leader
                                                   Natural Resources Center

               CJR:cz

               Enclosures
                                   Phone:
                                      165 Capitol Avenue e Hartford, Connecticut 06106

                                            An Equal Opporlunity Employer

                             EMERGENCY OPERATIONS PLAN REVIEW

                             EMERGENCY OPERATIONS PLAN REVIEW

                  Approximately 35,000 structures along Connecticut's

             shoreline have been identified as flood prone; 2,300 of these are

             located in the City of Milford. Connecticut has not experienced

             a major coastal storm in a number of years; yet the damage

             potential associated with a coastal storm in any Connecticut
             municipality is phenomenal, involving property destruction, loss

             of life and business interruption. The municipalities of

             Connecticut must therefore develop and.maintain alevel of flood

             preparedness that is adequate to protect its citizens in the

             event of a major coastal flooding event.

                A preliminary review of the Emergency operations Plans in

            effect in Connecticut's coastline towns revealed a marked

            deficiency in preparedness measures specifically addressing flood

            hazards. A detailed analysis was therefore conducted to identify

            deficiencies and assess the overall adequacy of the municipal

            Emergency operations Plans. Milford's Emergency Operations Plan

            (Milford Plan for Civil Preparedness, Civil Defense or Disaster

            Emergencies, February 28, 1977, updated April 26, 1980) was

            evaluated using the National Weather Service's Planning Guidance

            and Checklist for Evaluation of Existing Flood Preparedness Plans.

            The following section assesses-the adequacy of the existing
            provisions of Milford's Emergency Operations Plans and identifies

            plan items that are recommended but not presently included.

            General comments regarding Milford's Emergency Operations Plans

            are included in the Recommendations section which follows.

                                            -35-

                               CHECKLIST FOR EVALUATION OF
                            EXISTING FLOOD PREPAREDNESS PLANS

                 Plan Item                     Presently Existing      Subtasks To
        WARNING ELEMENT                        Included    Adequacy     Be Planned

         Flood Recognition Task

           Al. Select warning point                 Yes      Very Good
           A2. Warning point operational            Yes      Good       d,e,f
               procedures

           A3. Observer/monitor procedures          No       Poor       a,b

         Warning Dissemination Task

           A4. Procedures for issuing               Yes      Fair       b,c,d
               warnings

               Procedures for warning               No       Poor       a,,b,c
               special recipients

           A6. Procedures for warning               Yes      Fair       b,c,e
               dissemination

        EVACUATION AND RESCUE FJM49NT

         Evacuation Area Identification Task

           Bl. Identify overflow areas              No       Poor       a,b

           B2. Identify ponding areas               No       Poor

           B3. Identify other hazardous             No       Poor       a,b,c
               areas

         Evacuation Procedures Development Task

           B4. Select evacuation destinations       Yes      Fair       b,c

           B5. Identify evacuation routes           No       Poor       a,b,c

           B6. Establish evacuation                 No       Poor       a,,b,,c
               priorities

           B7. Establish evacuation                 Yes      Very Good
               procedures

                                               -36-

        eception     Center Operations Task
           B8. Determine reception center              Yes       Fair       ab,,c
                requirements

           B9. Select reception centers                Yes       Good

           B10. Reception center operational           Yes       Good       d
                 procedures

         Emergency Action Task

           Bll. Identify need for emergency            Yes       Good
                 action

           B12.  Determine emergency action            Yes       Good       d
                 requirements

           B13.  Establish emergency    action         Yes       Good
                 procedures

        DAMAGE REDUCT110K ELEMENT

         Flood  Fighting Task
        obl.    Identify needed flood                  No        Poor       a,,b,,cd,e,,f
                fighting actions

           C2.  Establish flood fighting               No        Poor       a,,b,,c,,d
                procedures

           C3.  Establish property                     Yes       Fair       a,c
                protection procedures

         Utility Management Task

           C4. Procedures for curtailment              Yes       Fair       a,c

           C5. Emergency operation procedures          No        Poor       a,b,,c

         Traffic Control Task

           C6. Identify traffic control needs          Yes       Good       b,c

           C7. Establish traffic control               Yes       Good       e
                procedures

                                         -37-

        0 intenance of Vital Services Task
           C8. Identify vital services/            Yes      Fair       a,b,d
               facilities

           C9. Vital services operational          Yes      Fair       a,c
               procedures

           C10. Establish records protection       No       Poor       a,,b,,c,,de,,f
                procedures

        RECOVERY ELEMENT

         Maintenance of Public Health Task

           Dl. Morgue procedures                   Yes      Fair       b,c

           D2. Preventive health   care            Yes      Very  Good
               procedures

         Return of Services Task

           D3. Procedures to restore utility       Yes      Fair       a,d
               services
        IDD4. Procedures to restore traffic        Yes      Fair       C

         Rehabilitation and Repair Task

           D5. Procedures for cleanup              Yes      Fair       b,d

           D6. Procedures for damaged              Yes      Good
               buildings

         Mobilization of Assistance Task

           D7. Identify recovery assistance        Yes      Good       d

           D8. Establish procedures for            Yes      Fair       b,c
               obtaining assistance

        PUBLIC INFORMATION ELEMENT

         Community Education Task

           El. Prepare public information          Yes      Fair       a,c,d,,e,,f
               program                                                 g,h

           E2. Prepare technical assistance        No       Poor       a,b,c,d
               program
        0

                                      -38-

        Oergency Information Task
           E3. Identify emergency                  Yes       Good
               information requirements

           E4. Establish emergency                 Yes       Fair       a,b,c
               procedures

           E5. Prepare warning announcements       No        Poor       a,,b,c

        PLAN 1"LEMENTATION ELEMENT

         Resources Identification Task

           Fl. Identify required resources         Yes       Good

           F2. Identify available resources        Yes       Good

         Responsibility  Allocation Task

           F3. Determine needs for                 Yes       Good
               responsibility assignments

           F4. Assign responsibilities             Yes       Good
        06rdination Task

           F5. Establish inter-agency              Yes       Good
               coordination procedures

           F6. Establish emergency acquistion      Yes       Fair       a,b
               arrangements

           F7. Establish state-local               Yes       Fair       b,c
               arrangements

           F8. Establish site-specific             No        Poor       ab,,c
               planning guidelines

        PLAN MAINTENANCE ELEMENT

         Plan Updating Task

           Gl. Periodic updating procedures        Yes       Poor       a.b.codesfe
                                                                        goh,?i
           G2. Event-dependent updating            No        Poor       a,,b,,c
               procedures

                                       -39-

           an Improvement Task

           G3. Describe needed  plan               No        Poor      a,b
               extensions

           G4. Describe needed  plan               No        Poor      a,b,c,d
               refinements

           G5. Establish procedures   for          No        Poor      a,b
               critiques

         Plan Practice Task

           G6. Establish plan test procedures      Yes       Poor      a,c,d,e,f

           G7. Establish plan simulation           No        Poor      a,b,c,d,e,f

                                      -40-

            Planning Guidance         subtasks NOT presently included in
                                      Emergency Operations Plan NOT DONE
         A. Warning Element

           Planning Objectives: To define systems for early recognition
           of floods and dissemination of warnings which are accurate,
           timely and reliable.

           Planning Tasks: Flood Recognition
                            Warning Dissemination

           Flood Recognition Task

           Al. Select a suitable local warning point which:

                     a. is operational and staffed on a 24-hour basis;

                     b. has adequate communications capability to receive
                        flood information by primary and back-up means from
                        all relevant sources;

                     c. is safely located with respect to flooding or other
                        common hazards; and

                     d. has an auxiliary power supply and other provisions
                        necessary to maintain full capability under adverse
                        conditions.

           A2. Establish operational procedures at the warning point which are
               applicable to the flood recognition approach used and:

                     a. specify arrangement for prompt receipt of flood
                        watches and flood warnings from NWS;

                     b. describe handling procedures for incoming information;

                     c. specify conditions under which data collection net-
                        works will be activated and the means of activation;

                     d. specify arrangements for initiating observation of
                        rivers and rainfall and for relaying of observations;
                     e. identify the point(s) to be referenced by NWS in flood
                        warnings and describe the translation necessary to in-
                        terpret stage and time information for use in the
                        specific area covered by the preparedness plan; and/or

                     f. describe detailed procedures for preparing forecasts
                        or estimates of flood severity based on river and
                        rainfall observer reports.

                                             -41-

            A3. Establish operational procedures to be followed by river and
                rainfall observers which:

                      a. identify the informational content and frequency of
                         reports to be made;

                      b. provide for both primary and back-up means of
                         communications.

            Warning Dissemination Task

            A4. Establish procedures for issuing warnings which:

                      a. assure prompt attention to information concerning flood
                         threats;

                      b. specify what types of warnings are to be issued under
                         various possible conditions;

                      c. assure warnings are commensurate with the expected
                         severity of the flood; and

                      d. assure warnings are coordinated with NWS.
            A5. Establish procedures for disseminating information concerning
               potential flood threats to special warning recipients which
                      a. identify which special warning recipients are to be noti-
                         fied under various possible conditions of flood threat;

                      b. describe the means of communications to be used in
                         alerting each special warning recipient; and

                      c. specify record keeping, acknowledgement and other pro-
                         cesses to assure notices are given and received.

            A6. Establish procedures for the dissemination of warnings to the gen-
                eral public which:

                      a. are adequate to assure all affected persons receive warn-
                         ings on a timely basis, notwithstanding telephone and
                         power failures;

                      b. pj@qvide-for various levels of warning appropriate to the
                         immediacy and seriousness of the flood threat;

                      c. specify the conditions under which each means of warning
                         dissemination will be used;

                      d. describe the process by which parties responsible for each
                         means of dissemination are instructed to begin distribu-
                         ting warnings; and

                      e. take into consideration the time of day, day of the week
                         or seasonal factors affecting the need for or means of
                         warning dissemination.

                                     -42-

             Evacuation and Rescue Element

            Planning Objectives: To prevent the loss of life due to flooding or
            to flood related causes.

            Planning Tasks:  Evacuation Area Identification
                             Evacuation Procedures Development
                             .Reception Center Operations
                             Emergency Actions

            Evacuation Area Identification Task

            Bl. Identify areas which will be inundated at each potential level of
                flooding due to:

                      a. overbank flows; and

                      b. entry of flood waters through  sewers, drainag e channels or
                         other means of access.

            B2. Identify areas which will be inundated due to internal drainage or
                ponding unrelated to flood height.

            B3. Identify areas requiring evacuation for reasons other than inunda-
                tion including:

                      a. loss of access or escape routes;

                      b. loss or curtailment of utility or other emergency
                         services; and

                      c. site-specific problems.

            Evacuation Procedures Development Task

            B4. Select evacuation destinations for each area to be evacuated
                which are:

                      a. safe from flooding and other related hazards;

                      b. easily identified to the public;

                      c. within time and distance commensurate with the warning
                         time; and,

                      d. suitable for use for the expected duration of the flood.

            B5. Identify best available evacuation routes which are:

                      a. safe from early flooding due to urban drainage or other
                         impediments;

                      b. passable in all weather; and

                      c. adequate to handle expected traffic.

                                     -43-

            B6. Establish priorities for evacuation which take into account:

                       a. time of flooding with respect to other areas;

                       b. severity of flooding; and

                       c. loss of escape routes.

            B7. Establish procedures for carrying out evacuation which are consis-
                 tent with the warning time available including:

                       a. insuring affected public is advised of the need to evac-
                          uate, safe destinations, routes and time available;

                       b. providing general assistance in transportation and in
                          preparing homes and businesses for evacuation;

                       c. providing special assistance to those having unusual
                          evacuation needs;.

                       d.' assuring evacuation is complete;

                       e. establishing traffic controls to prevent accidental entry
                          into dangerous areas, identify evacuation routes and
                          facilitate evacuation traffic; and

                       f. establishing surveillance over the evacuation area to
                          insure safety of the area.

            Reception Center Operations Task

            B8. Estimate the duration, damage and population affected in the case
                 of a severe flood and determine reception center requirements
                 including:

                       a. number of persons likely to be housed overnight;

                       b. number of meals to be served;

                       c. type and extent of medical or other care required;

                       d. required services, equipment and supplies for operation;

                       e. required personnel for operation.

                 Select reception center(s) which:

                       a. are safe under conditions of severe flooding;

                       b. have or can be provided with necessary equipment and
                          services;

                       c. provide sufficient space for required activities;
        4D             d. are available on short notice for the required duration;
                       e. are readily identifiable to the public and accessible
                          from all areas.

                                      -44-

            B10. Establish procedures for the operation of reception centers
                 including:

                      a. basis on which reception center operations will be
                         activated and terminated;

                      b. source and means of providing necessary supplies,
                         equipment and services;

                      c. allocation of space for reception center functions; and

                      d. provision of temporary assistance and information on
                         long term recovery aid.

            Emergency Action Task

            Bll. Evaluate the areas subject to flooding or isolation with respect
                 to the types of emergency activities which may be required
                 including:

                      a. emergency evacuation of persons from dangerous areas;

                      b. emergency provision of medical attention, fire control
                         or other assistance;

                      c. emergency operation or curtailment of power, water, gas
                         and other services;

                      d. control or containment of toxics, explosive gases and
                         other dangerous commodities; and

                      e. search for survivors.

            B12. Determine requirements for conducting emergency actions including:

                      a. personnel;

                      b. transportation;

                      c. heavy duty equipment such as boats, trucks, earth movers
                         and others; and

                      d. portable hand tools and other equipment.

            B13. Establish procedures for carrying out emergency actions including:

                      a. organization of rescue squads;

                      b. placement of personnel and equipment for conducting
                         emergency activities;

                      c. coordination arrangements for identifying needs for
                         assistance and responding to calls; and

                      d. maintenance of communications.

                                    -45-

          C. Damage Reduction Element

            Planning Objectives: To reduce public and private property damages
            from flooding or flood related causes.

            Planning Tasks:  Flood Fighting
                             Utility Management
                             Traffic Control
                             Maintenance of Vital Services

            Flood Fighting Task

            Cl. Identify needed flood fighting actions to reduce overflow, seepage
                and other types of flooding as well as erosion due to flood waters
                including:

                      a. assuring flood gates or sewer outlets are closed;

                      b. temporary heightening of levees or floodwalls;

                      c. closing of openings in levees and other embankments;

                      d. containing overflows through manholes and other openings
                         in the sewer system;

                      e. pumping of internal drainage waters; and

                      f. control of erosion at bridges, levees, building
                         foundations and roadway embankments.

            C2. Establish flood fighting procedures to control overflow, seepage or
                other types of flooding with respect to:

                      a. locations where each action is to be carried out;

                      b. maintaining surveillance to determine the need for per-
                         sonnel, equipment and further actions;

                      c. priority for accomplishment; and

                      d. extent of action required for various flood heights.

            C3. Establish procedures for the evacuation or temporary removal and
                relocation of automobiles, furniture, valuables, clothes, business
                and personal records, machinery and other movable property to
                reduce damage including:

                      a. identification of types of action required at various
                         locations and expected flood heights;

                      b. arrangements for the provision of labor and transportation
                         assistance; and

                      c. identification of safe locations for storage of property.

                                     -46-

            Utility Management Task

            C4. Establish procedures for the curtailment of utility services to
                flooded areas including:

                      a. need for curtailment by area or individual property for
                         each flood height;

                      b. means for accomplishing curtailment (i.e., homeowner,
                         utility staff); and

                      c. preparations to be made by property owner (within allow-
                         able time) prior to evacuation to minimize damage and
                         facilitate the eventual return of services.

            C5. Establish utility operation procedures to be used immediately prior
                to and during floods to:

                      a. minimize losses and-risks caused by damaged utility
                         systems;

                      b. reduce damage done to utility equipment, supplies and
                         operational capabilities; and

                      c. maintain necessary utility services to vital community
                         facilities.
        0 Traffic Control Task

            C6. Identify needs for traffic control prior to, during and immediately
                after floods including:

                      a. preventing accidental travel in areas which are.or will be
                         flooded;

                      b. establishing evacuation routes and speeding evacuation
                         traffic;

                      c. facilitating access to evacuation areas for transporta-
                         tion, rescue and other essential traffic;

                      d. preventing use of damaged roadways and bridges; and

                      e. controlling access to damaged areas.

            C7. Establish procedures for traffic control which:

                      a. identify areas to be controlled at each expected flood
                         height;

                      b. specify locations where traffic control is to be
                         established;

                      c. identify detours or types of control to be effected;

                      d. specify placement of personnel, barricades and signs
                         to effect necessary control and means of enforcement; and

                                     -47-

                        e. describe the process for implementing pass systems or
                           other arrangements for limiting post-flood entry to
                           damaged areas to residents and other authorized persons.

             Maintenance of Vital Services Task

             C8. Identify police, fire, medical and other vital community services
                 and facilities with respect to:

                        a. location;

                        b. vulnerability to interference by inundation, loss of
                           access or communications;,

                        C. interdependencies on other services and facilities
                           including utilities;

                        d. temporary floodproofing or other actions required to pre-
                           vent the loss of service or function; and

                        e. need for and means of providing auxiliary power, heat,
                           water, sewage disposal and other services necessary for
                           continued operation of vital facilities.

             C9. Establish operational procedures for police, fire, utility repair,
                 @escue, medical and other services prior to and during floods
                  including:

                        a. placement of equipment and personnel to prevent loss of
                           access due to flooding of roads and underpasses or
                           failure of bridges;

                        b. means of relaying calls for assistance and coordinating
                           responses; and

                        c. alternate routes for entering areas where traffic is
                           controlled and avoiding evacuation routes.

             C10. Establish procedures for evacuation or protection of important
                  records and documents located in areas subject to flooding
                  including those relating to:

                        a. vital statistics;

                        b. tax and payroll information;

                        c. court records;

                        d..utility records;

                        e. property ownership; and

                        f. business records.

                                       -48-

           D. Recovery Element

             Planning Objectives: To initiate and carry out post flood actions to
             maintain public health, return community services to normal at the
             earliest possible time and to provide aid and assistance in recovery.

             Planning Task    Maintenance  of Public Health
                              Return of Services
                              Rehabilitation and Repair
                              Mobilization of Assistance

             Maintenance of Public Health Task

             Dl. Estabish procedures for handling of the dead including:

                       a. morgue location and method of operation;

                       b. handling of personal effects; and

                       c. identification and release of bodies.

             D2. Establish procedures for actions to preserve public health
                 including:

                       a. provision of emergency medical services and care for
                          injured persons;

                       b. procedure for locating missing persons and providing
                          information to friends and relations;

                       c. collection and destruction of contaminated foodstuffs;

                       d. disinfection of private water supply sources and
                          systems;

                       e. innoculations and other preventive medical care;

                       f. disease control; and

                       g. control of insects, rodents, and other pests.

             Return of Services Task

             D3. Establish procedures for actions to resume provision of utility
                 services including:

                       a. preparations to be made by property owners;

                       b. system preparations including decontamination of water
                          supplies;

                       c. sequence for returning services; and

                       d. priority for resuming services.

                                      -49-

             D4. Establish procedures for returning to normal traffic patterns
                 including:

                       a. evaluation of road and bridge safety;

                       b. debris clearance; and

                       c.,priority for providing access.

             Rehabilitation and Repair Task.

             D5. Establish procedures for post-flood clean-up including:

                       a. clearance, collection and disposal of debris and
                          discarded goods;

                       b. street washing;

                       c. pumping basements; and

                       d. return of material previously relocated for safekeeping.

             D6. Establish procedures for management of damaged structures
                 including:

                       a. procedures for identification and evaluation of damage;

                       b. demolition or temporary repair of hazardous buildings.

             Mobilization of Assistance Task

             D7. Identify the sources and programs for recovery assistance and the
                 means of obtaining each including:

                       a. volunteer organizations;

                       b. mutual aid agreements;

                       c. state assistance; and

                       d. federal assistance.

             D8. Establish procedures for mobilizing assistance from each available
                 source including:

                       a. conditions under which requests for assistance will
                          be made;

                       b. channels to be followed in requesting assistance; and

                       c. preparation of necessary requests, disaster declarations
                          or other documentation required as a condition of
                          assistance.

                                      -50-

        0
          E. Public Information Element

            Planning Objectives: To develop community awareness and understanding
            of the flood hazard and to prepare for the accurate and timely pro-
            vision of information during flood emergencies.

            Planning Tasks: Community Education
                             Emergency Information

            Community Education Task

            El. Prepare the materials for and carry out a continuing public infor-
               mation program, including letters to residents in evacuation areas,
               to increase community awareness of floods and evacuation area
               residents' knowledge with respect to:

                     a. the source, nature, frequency and potential severity of
                         floods;

                     b.  the community's system for flood recognition and dissem-
                         ination of warnings to the public;

                     c.  the meaning of various types of warning announcements,
                         siren signals and/or evacuation notices;

                     d.  the areas likely to be inundated or evacuated at each
                         level of expected flooding;

                     e.  procedures for evacuation including preparations for
                         evacuation, routes, safe destinations and identification
                         of reception centers;

                     f.  actions which can be taken by property owners to reduce
                         damages including movement of furniture and valuables,
                         curtailment of electrical power and gas service and
                         temporary floodproofing;

                     g.  means of requesting identification as a special warning
                         recipient or receiving special assistance in evacuation;

                     h.  safety and remedial actions to be taken when returning to
                         flood damaged buildings.

                                    -51-

             E2. Prepare and carry out a continuing program to provide technical
                 information to those wishing to employ temporary floodproofing
                 measures or needing to develop more detailed subplans for warning
                 dissemination, evacuation, and damage reduction including:

                       a. identification of areas where the depth and velocity of
                          expected flooding and opportunities for egress enable
                          the use of temporary floodproofing measures;

                       b. procedures for temporary floodproofing;

                       c. relation between forecast flood heights and on-site
                          depths; and

                       d. guidelines and criteria for warning dissemination and
                          evacuation plans for hotels, motels, hospitals and/or
                          other facilities requiring more detailed arrangements.

             Emergency Information Task

             E3. Identify the types of emergency information to be conveyed to the
                 public in the period prior to, during and immediately following
                 a flood including:

                       a. early watches, warnings and evacuation notices; worded
                          appropriately to obtain maximum public response;

                       b. information on actions to be taken, location of safe
                          areas and areas to be avoided, location of reception
                          centers, and ways of obtaining emergency assistance;

                       _c. actions being taken or to be taken to deal with the
                          flood;

                       d. calls for labor, equipment or other types of assistance
                          needed for evacuation damage reduction and/or recovery
                          activities; and

                       e. information concerning sources and availability of
                          recovery assistance.

            E4. Identify  the means and procedures to be used in communicating each
                type of information with respect to:

                       a. form and content of each type of message;

                       b. handling of flood warnings and other related messages;

                       c. source and verification of messages; and

                       d. interfacing of communications equipment.

                                     -52-

            E5. Prepare warning announcements for use in various potential cir-
                cumstances and expected flood heights which:

                      a. provide specific information and instructions;

                      b. reference an authoritative and familiar source; and

                      c. ensure an immediate adequate response on the part of the
                         public and responsible officials to warning messages
                         by considering the various factors governing warning
                         confirmation and warning belief.

          F. Plan Implementation Element

            Planning Objectives: To develop the administrative arrangements
            necessary for effective implementation of the flood preparedness plan.

            Planning Tasks: Resource Identification
                             Responsibility Allocation
                             Coordination

            Resource Identification Task

            Fl. Identify type and amount of resources required for implementing
               the plan including:

                      a. technical, administrative and other personnel;

                      b. equipment and supplies; and

                      c. facilities.

            F2. Identify the sources of personnel, equipment, supplies and
               facilities for implementing the plan including:

                      a. community resources;

                      b. private resources;

                      c. assistance through mutual aid agreements; and

                      d. state and/or federal assistance.

                                    -53-

            Responsibility Allocation Task

            F3. Evaluate each aspect of plan implementation with respect to:

                      a. actions requiring detailed and specific assignments of
                         responsibility; and

                      b. actions suitable for assignment on an organizational
                         basis.

            F4. Assign responsibility for implementation of each aspect of the
                plan including:

                      a. instructions as to how, when and by whom implementation
                         is to be assured;

                      b. requirements for any necessary subplans or supplemental
                         procedures; and

                      c. establishment of a chain of command to ensure plan
                         implementation will proceed in the event of absence or
                         incapacity of key personnel.

            Coordination Task

            F5. Establish procedures for coordination of local governmental actions
                through an emergency operations center, if available, or other
                mechanisms, including:

                      a. identification of responsibilities to be assigned to
                         the center;

                      b. operational procedures for staffing, and operation of the
                         center to carry out the assigned responsibilities; and

                      c. procedures for activation and termination of the center.

            F6. Establish necessary arrangements, including mutual aid agreements',
                for use of facilities, equipment and personnel, and services
                necessary for implementation of the plan including:

                      a. location of river and rainfall gages, participation of
                         observers, and receipt of information from upstream
                         areas;

                      b. land rights for flood fighting and other purposes;

                      c. use of reception centers, hospitals, and areas for
                         property storage;

                      d  use of vehicles for evacuation or movement of property;

                      e. participation of volunteer organizations; and

                      f. provision of necessary supplies, materials, construc-
                         tion equipment and other items.

                                     -54-

            F7. Establish procedures to coordinate the local plan fully with
                state and other local plans for emergency operations including:

                      a. integration with regional or statewide flood warning
                         systems and communication networks, state flood dis-
                         aster plans and other local natural disaster plans;

                      b. coordination of evacuation plans with those for flood
                         control, particularly where closure of floodgates in
                         levees or floodwalls may affect escape routes; and

                      c. coordination with NWS with respect to use of all
                         available information and issuance of warnings.

            F8. Establish procedures to guide and coordinate more detailed
                site-specific planning for warning dissemination, evacuation
                and damage reduction in public and private buildings
                including:

                      a. process for identifying locations where such plans
                         are,necessary;

                      b. minimum elements and appropriate level of detail to be
                         included in planning; and

                      c. provision of technical assistance in planning.

            Plan Maintena'nce Element

            Planning objectives: To update, extend and improve the flood prepar-
            edness plan and to insure readiness for executing the plan.

            Planning Tasks: Plan Updating
                             Plan Improvement
                             Plan Practice

            Plan Updating Task

            G1. Establish procedures and schedules for plan contents subject to
                rapid obsolescence including:

                      a. addresses, telephone numbers, and names of key
                         participants;

                      b. assignments of responsibility;

                      c. changes in flood potential;

                      d. areas requiring evacuation;

                      e. availability of facilities for reception centers;

                      f. evacuation routes and priorities;

                      g. flood fighting requirements;

                      h. utility extensions or system modifications; and
                      i. traffic cont5g@_requirements.

        0
            G2. Establish procedures for updating of plan contents based on
                 specific events such as:

                      a. construction of or modification in the operation of up-
                         stream water control structures which affect the height,
                         severity, or time of flooding;

                      b. natural or unplanned events which modify the flood
                         potential; and

                      c. construction or modification in the operation of facil-
                         ities in or downstream of the community which increases
                         the height, severity, or duration of floods.

            Plan Improvement Task

           G3. Describe needed and planned extensions of the warning system and
                preparedness plan including:

                      a. coverage of*additional area; and

                      b. incorporation of elements, tasks and subtasks omitted from
                         the initial plan.
        0 G4. Describe   'needed and planned refinements to the warning system and
               preparedness plan including:

                      a. provision of additional observers, gages and flash flood
                         alarms to improve the flood recognition system;

                      b. more detailed identification of areas to be evacuated;

                      c. strengthening of communications involved in all aspects
                         of the plan; and

                      d. development of additional subplans for various affected
                         organizations and locations.

           G5. Establish procedures for the critical evaluation of performance
               in real and simulated implementation of the plan including:

                      a. process for initiationt organization and conduct of the
                         evaluation; and

                      b. process for modification of the plan based on findings
                         of the evaluation.

                                     -56-

            Plan Practice Task

            G6. Establish procedures and schedules for testing those aspects of
                the flood warning system and preparedness plan which are sus-
                 ceptible to periodic use such as:

                      a. procedures for communication with observer networks,
                         NWS and other federal offices, special warning re-
                         cipients, organizations and officals responsible for
                         warning,dissemination and plan execution, and others as
                         may be appropriate;

                      b. communications equipment including sirens, radio trans-
                         mitters and receivers, flash flood alarm circuits, and
                         others, with particular attention to battery powered
                         equipment;

                      c. auxiliary sources for electrical power and other
                         services;

                      d. procedures for activation of the emergency operation
                         center, sending and revceiving observer reports,
                         handling messages, preparing forecasts, disseminating
                         warnings, placement of equipment and personnel for
                         evacuation and rescue, protection of vital facilities
                         and other steps in execution of the plan.

                      e. availability and operational status of equipment for
                         evacuation, rescue and damage reduction activities; and

                      f. availability and procedures for use of key maps, lists
                         and other important plan documentation.

           G7. Establish procedures and schedules for the periodic simulation
               of those aspects of the warning system and preparedness plan not
                susceptible to direct testing such as:

                      a. decisions to issue warnings or direct evacuation;

                      b. evacuation;

                      c. implementation of traffic control procedures;

                      d. activation of reception centers;

                      e. curtailment of utility services; and

                      f. procedures for rescue, handling of injuries and
                         casualties, and public health measures.

                                     -57-

                                      RECOMMENDATIONS

                                  RECOMMENDED MUNICIPAL CHANGES

                  The City of Milford is vulnerable to hurricanes, strong tidal

             action and flooding from its exposure to Long Island Sound, and

             general riverine flooding from several watercourses within the town.

             A large percentage of Milford's coastline is characterized by low-
             lying, highly developed residential areas, many of which lose access

             and become isolated during coastal storms. Approximately 2,300

             residential, commercial and industrial structures have-been identified

             as being located within flood zones; and 3,400 residents of Milford

             live in flood prone areas. It is the responsibility of local

             authorities to plan, prepare and provide for their constituents in the

             event of an emergency. Flood preparedness is furthermore most

             effectively practiced at the local level. The municipal officials are,

             therefore, encouraged to implement flood preparedness measures to

             protect the lives and property of floodplain inhabitants.

             I. Emergency operations Plan

                 Milford has experienced at least ten major coastal storms since

             1938, costing millions of dollars in damages and the loss of at least

             one life. Steps have consequently been taken by the city to mitigate

             future damages, including the establishment of an approved Emergency

             Operations Plan and warning system, the establishment of an Emergency

             Operations Center to coordinate emergency services during a flood and
             integration with the National Weather Service broadcasting system for

             early warning.

                                        _59-

                  While Milford has demonstrated strong initiative in.dealing with

             coastal flood problems, we are recommending that the process be taken

             one step further by developing and appending to the city's Emergency

             Operations Plan or Natural Disaster Planning a written flood annex,

             specifically addressing flood warning, preparedness and mitigation

             efforts. Development of such an annex may be facilitated through the

             use of the attached guidelines (see Planning Guidance and Checklist

             for Evaluation of Existing Flood Preparedness Plans). These

             guidelines, developed in 1977 by the National Weather Service, are

             intended to assist a community in its initial development or

             improvement of existing flood preparedness plans. While the

             guidelines identify a range of matters to be considered, suggest

             procedures and provide a planning aid, they do no t contain or

             constitute a model plan. Each community must first assess its

             potential flooding problem and identify the resources available for

             warning, evacuation and recovery procedures. Each town's needs will

             vary according to the frequency and severity of anticipated flooding,

             the size of the population affected and the advanced warning time

             available. The guidelines were used to assess the adequacy and

             identify deficiencies of Milford's existing Emergency operations Plan

             and Natural Disaster Planning in addressing flood hazards.

             A. War ing

                  Milford's Warning Annex (December 8, 1981) includes a number of

             the elements recommended in a flood preparedness plan, such as

             selection of a warning point and standard operating procedures for the
             warning point. Because of Milford's shoreline exposure, however, it
             is strongly recommended that observers be assigned to monitor rainfall

                                         -60-

             and rising water, prepare estimates of flood severity and issue

             reports to the Emergency Operations Center. Milford should

             additionally consider the implementation of an automated flood warning

             system in conjunction with the Northeast River Forecast Center of the

             National Weather Service. These measures could increase the time

             available to warn residents and businesses who would be affected by

             potential flooding.

                 Warning dissemination procedures are included in the annex, but

             special warning recipients and the methods used to warn them should be

             identified. Such recipients may include:

                 1.  Persons or organizations involved in decisions to
                     initiate general dissemination of warnings

                 2.  Police, fire, rescue and other emergency forces

                 3.  Public works department

                 4.  Persons responsible for operating the Emergency Opera-
                     tions Center

                 5.  Mutual aid

                 6.  Utilities

                 7.  Schools, convalescent homes, elderly housing

                 8.  Hotels, motels

                 9.  Businesses, facilities or homes requiring additional
                     time to implement floodproofing techniques

                 10. Individuals who may not receive or comprehend warnings
                     by techniques in general use such as the deaf

                 11. Marinas and water borne traffic

             B. Evacuation

                 It is recommended that the evacuation planning as assigned to the

             Milford Civil-Preparedness (Civil Defense) Agency and implemented by

             the Fire Department be more fully developed and integrated into a

                                        -61-

             flood annex. Evacuation poses particularly difficult problems in

             Milford, as a number of areas suffer loss of access in addition to

             inundation. Flood prone areas must first be identified in the"annex;

             priorities for evacuations should then be  established with particular

             emphasis on the heavily populated coastal  flood zones including

             Milford Point, Walnut Beach, Great Creek,  Bayview Beach, and Pond

             Point. where possible, evacuation routes   from these areas should be

             selected which are safe from flooding and  easily identifiable to the

             public. Where possible, alternate evacuation routes should be planned

             where they exist in the event of a bridge or road washout. Evacuation

             planning should additionally include:

                  1.  Description of traffic control arrangements to expedite
                      evacuation and passage of emergency vehicles and prevent
                      accidental travel into dangerous areas

                  2.  Provisions for any necessary assistance to evacuees such
                      as transportation and aid to invalids

                  3.  Arrangements for security of evacuated areas; and

                  4.  Listing of maps, tabular data or other aids required to
                      support evacuation planning

                  It is important to note that the Milford Police and Fire

             Departments have gone on record as being opposed to any development in

             any floodplain area primarily because of the loss of access to such

             areas for emergency services.

             C. Mobilization of Assistance

                  The local government is responsible for mobilizing local

             resources to support an effective disaster operation. The Emergency

             Operations Plan contains good provisions for contacting and enlisting

             the aid of mutual agreements and volunteer organizations for recovery

             assistance (towns of Stratford, West Haven and Orange, American Red

                                         -62-

             Cross, Salvation Army, Veterans organizations, womens' organizations
             and auxiliaries) and for coordinating their efforts. The sources and

             programs for state and federal assistance should also be identified in

             the Emergency Operations Plan.

                 All local requests for state and federal assistance are channeled

             through the Area II Coordinator to the State office of Civil

             Preparedness. The State Office of Civil Preparedness then mobilizes

             assistance from the appropriate state agencies and, if necessary,

             federal assistance from the Federal Emergency Management Agency.
                 Although the primary responsibility for disaster relief lies with

             the State of Connecticut and the municipalities, a number of federal

             agencies offer supplemental relief and recovery programs. To expedite

             requests for such aid, the town may wish to document the primary

             federal assistance programs in the Emergency Operations Plan. These

             agencies and programs are outlined below:

                 1. Department of Agriculture/Soil Conservation Service

                     Emergency Watershed Protection to carry out emergency
                       measure installation for soil erosion prevention and
                       run-off retardation in watersheds that have been
                       suddenly impaired by a natural disaster

                 2. Department of Commerce/National Oceanic and Atmospheric
                     Administration - National Weather Service

                     Forecasts and Warnings to provide a forecast and warning
                       service for all weather related to natural disasters

                     River and Flood Forecast and Warnings Services to pro-
                       vide forecasts of warning levels of the nation's rivers
                       as a direct contribution to public safety

                 3. Department of Defense/U.S. Army Corps of Engineers

                     Flood Control Works and Federally Authorized Coastal
                       Protection Works, Rehabilitation to assist in the re-
                       pair and restoration of flood control works damaged by
                       floods or federally authorized hurricane flood and
                       shore protection works damaged by extraordinary wind,
                       wave or water action

                                        -63-

                      Flood Fighting and Rescue Operations to provide emer-
                       gency assistance as required to supplement local
                       efforts and capabilities in time of flood or coastal
                       storm

                      Protection of Essential Highways, Highway Bridge
                       Approaches and Public Works to provide bank protection
                       of highways, highway bridges and essential public
                       works endangered by flood-caused erosion

                 4. Federal Emergency Management Agency

                      Communications to provide temporary communication fac-
                       ilities in disaster areas where such facilities have
                       been severely disrupted

                      Debris Removal to remove debris and wreckage resulting
                       Yr-oma major disaster from publicly and privately
                       owned lands and waters when determined to be in the
                       public interest

                      Food, Water and Shelter to provide food, water, mass
                       feeding and shelter services in time of natural
                       disaster

                      Protection, Evacuation, Search and Rescue to protect
                       life and property and to carry out evacuation and
                       search and rescue operations

                      Public Transportation to provide temporary public trans-
                       portation services to meet emergency needs when such
                       services have been severely disrupted because of a
                       major disaster

                      Temporary Housing to provide temporary housing for
                       individuals and families displaced as a result of a
                       disaster

                      Community Disaster Loans to provide funds to any local
                       government which has suffered a substantial loss of
                       tax and other revenue as a result of a major disaster
                       and has demonstrated a need for financial assistance
                       in order to perform its governmental functions

                      Repair or Reconstruction of Public Facilities to provide
                      for the repair, restoration, reconstruction or
                      replacement of public facilities which have been damaged
                      or destroyed by a major disaster.

                 it is important that these agencies and programs be identified in

            the Emergency Operations Plan to ensure that the contacts needed for

                                        -64-

             assistance during and immediately following a disaster are readily

             available.

                 D. Community Education/Public Awareness

                 A public information element is needed in the Emergency
             Operations Plan to develop community awareness and understanding of

             the flood hazard and to provide accurate and timely information during

             flood emergencies. Community education serves to: (1) increase

             awareness of potential flood hazards, (2) familiarize the public with
             thie town's system for flood recognition and dissemination of warnings
             to the public and how emergency operations will be conducted in the

             event of a disaster, (3) inform residents of the areas likely to be

             evacuated during a flood and provide information concerning evacuation

             routes and destinations, (4) inform residents of actions they can take

             before and immediately following a flood to reduce damages such as
             moving valuable possessions and turning off utilities, and (5) provide

             a means of requesting identification as a special warning recipient or

             receiving special assistance in evacuation.

                 The Natural Resources Center has conducted a limited public

             awareness campaign in Milford by disseminating a residential property

             owner's questionnaire concerning flood hazard awareness and flood

             preparedness measures to a representative sample of flood zone

             occupants. Additional information regarding flood preparedness

             planning, the National Flood Insurance Program and floodproofing

             techniques was distributed with the questionnaire. A large percentage

             of respondents requested yet more detailed information from the

             Natural Resources Center, indicating there exists a strong public

             demand for more flood preparedness information. Because we were

                                       .-65-

             unable to contact all floodplain occupants, the Natural Resources

             Center constructed two flood preparedness exhibits that are available

             to municipalities upon request for public display. 'Ideally, all

             hazard awareness campaigns should be formulated and conducted at the

             local level so they can be made as specific and meaningful as

             possible. The City of Milford should additionally consider
             implementing a continuing program of community education by

             distributing newsletters, flyers or brochures townwide or holding
             public meetings that will reach all citizens and maintain public
                                i
             awareness of flood preparedness.

             E. Plan Maintenance and Practice

                 Milford's Emergency Operations Plan contains provisions and

             schedules for updating but falls short of specifying the information

             that must be kept current. Most importantly, the names, addresses and

             telephone numbers of key participants and assignments of

             responsibility must be updated on an annual or semi-annual basis.

             Additional information regarding changes in flood potential, areas

             requiring evacuation, availability of facilities for reception

             centers, evacuation routes.and priorities, flood-fighting requirements

             and adjustments made necessary by experience gained as a result of

             exercises should be updated as needed.

                 In addition, provisions should be included in the plan for
             testing the warning system and preparedness and response activities.

             Such exercises are invaluable in familiarizing the participants with

             the operation of the Emergency Operations Center and asociated duties.

             Plan practice further functions in: (1) establishing lines of

             communication, (2) providing coordination between agencies and

                                        -66-

        0    departments, (3) setting priorities for use of manpower and equipment

             when resources are exhausted, and (4) surfacing unforeseen problems,

             allowing participants to analyze the situation and make
             recommendations for improvements, thereby lessening the confusion that

             accompanies a real disaster.

             II. Flood Insurance

                 -Milford is enrolled in the regular phase of the National Flood

             Insurance Program (NFIP), which enables all property owners within the

             town to purchase federally subsidized flood insurance. The inventory

             of structures located within flood zones in Milford identified 2,281

             residential, commercial and industrial structures and utilities as

             flood prone. One thousand eight hundred seventy one (1,871) of those

             structures are located in the A zone (100-year flood zone) and V zone
             (100-year flood zone subject to wind and wave action). Comparing this

             figure (1,871) with the number of flood insurance. policies in effect

             (988 as of March 31, 1982), it appears that forty-eight percent of the

             structures vulnerable to the 100-year flood hazard are not insured

             against flooding.

                  It is recommended that an attempt be made to increase the flood

             insurance coverage in Milford, given the high percentage of flood-

             prone structures that are not insured. Flood insurance is an

             effective tool in reducing the enormous recovery costs associated with

             a flood disaster incurred by both the public and private sectors.

             Furthermore, rec ent changes in feder al legislation have placed greater

             responsibility for flood preparedness on the state and local

                                         -67-

             governments and the private sector. Federal disasteraid has been

             reduced from a 100 percent federal to a 75 percent federal/25 percent

             state and local share. Flood insurance premiums have increased

             substantially; standard deductibles have more than doubled.

             Replacement cost coverage is now available only on a single-family

             principal residence. Yet, the purchase of flood insurance is clearly

             the most cost beneficial step a property owner can take to reduce

             flood losses. As an incentive, however, policyholders are now
             eligible for reimbursement of expenses incurred in moving contents of

             a structure away from a pending flood. Such changes are aimed at
             reducing the existing flood hazard potential and forcing flood zone

             occupants to take responsibility for flood preparedness actions.

                  Flood insurance coverage could be increased most effectively

             through the efforts of independent insurance agents. Insurance agents

             are most knowledgeable about property insurance, and the incentive to

             promote flood insurance coverage is the commission earned on the

             policies written.

                  The municipality could assist with flood insurance promotion

             through a public awareness campaign or community education program for
             flood preparedness. In addition, property owners who are willing to

             risk reconstruction costs may consider purchasing flood insurance if

             the town reinforces the additional requirements placed on construction

             begun after the publication of the Flood Insurance Rate Map. For

             example, new construction or substantial improvements initiated after

             the effective date of the Flood Insurance Rate Map (September 29,
             1978) are subject to more stringent building codes, as the lowest

             floor elevation of buildings in special flood hazard areas must be at

             or above the base flood elevation.

                                         _68-

             III. Flooaplain Zoning and Floodplain ordinances

                 Milford's Flood Plain Zoning Regulations provide excellent

             guidelines for the city's future floodplain management. By detailing

             mandatory floodproofing me asures, construction specifications in flood

             zones, and standards for granting permits or variances, the

             regulations facilitate administrative and court review and provide

             certainty and predictability in the review process. Effectiveness of

             the program will depend on stringent enforcement of the regulations.

                 The only recommendation made concerns critical uses in flood

             zones. While judicious use of the 100-year flood standard as a

             minimum for flood hazard area regulation should be continued, critical
             facilities should be protected to the 500-year elevation. Critical

             facilities include disaster, fire and police centers, hospitals,

             prisons, facilities for the elderly and handicapped, fuel and

             hazardous or toxic materials storage. These facilities pose unique,

             serious threats to public health and safety when exposed to flooding,

             and the town may wish to consider banning such uses from the floodway

             and flood fringe areas.

             IV. Land Acquisition

                 Land acquisition is an effective but infrequently used approach

             to reducing future flood damages. Section 1362 of the National Flood

             Insurance Act of 1968, as amended, specifically provides for the

             acquisition, in limited circumstances, of flood damaged properties and

                                        -69-

             conversion of the properties to a public open space or recreational

             use. In 1981, the Coastal Area Management Unit of the Department of
             Environmental Protection undertook a study to identify specific

             locations along the Connecticut coast where this technique had high

             potential for application following a major flood. The result of this

             effort, the Connecticut Coastal Flood Hazard Area Study, identified

             one such area in Milford: Cedar Beach.

                 The City of Milford is encouraged to give serious consid-

             eration to acquiring properties within Cedar Beach as part-of its

             overall coastal management and floodplain management programs. In

             addition, the recommendations put forth in the study to increase the

             chances of receiving Section 1362 funds should be followed, namely:

                 a.  modify existing floodplain management regulations so
                     that they go beyond the minimum FEMA regulations.

                 b.  maintain a record of strict enforcement of floodplain
                     regulations, with few or no variances permitted

                 C.  prepare a post-flood recovery and hazard mitigation
                     plan

                 d.  develop an effective flood warning and evacuation plan

                 e.  submit a complete and timely annual report to FEMA

                 f.  establish a procedure to notify all perspective
                     purchasers and renters of flood-prone properties of the
                     risk of living in the area.

             V. Road, Bridge and Culvert Design Standards

                 The State of Connecticut supports the policy of whenever

             possible, upgrading hydraulically inadequate stream crossings to
             provide adequate capability to pass the 100 year flood discharge.

             Following the June 1982 flood, however, it was discovered that most

                                        -70-

             municipalities had inadequate stream crossing standards to qualify for
             upgrading under FEMA's public assistance program. Replacement of

             local stream crossings destroyed during a declared disaster are funded

             by the Federal Emergency Management Agency's public assistance

             program. This program provides for all publicly owned structures to

             be replaced to the pre-flood condition with a maximum of fifteen

             percent of the Damage Survey Report total available for disaster
             proofing. If more stringent standards are formally adopted, enforced

             and in general use by the applicant at the time of the disaster, the

             structure would be upgraded, and a larger percentage paid by FEMA

             funds. Milford is therefore encouraged to adopt municipal road,

             bridge and culvert design standards equivalent to those in effect at

             the state level. Such standards would eliminate repeated road and

             bridge damage at the local level, reduce long-term damages and result

             in higher federal reimbursements.

             VI. Stormwater Management

                 Stormwater run-off is a valuable natural resource that augments

             water supply, recreation and groundwater recharge. Excessive

             stormwater run-off, however, can result in flooding, property damage

            .and the destruction of roads and utilities. The entire City of

             Milford is subject to surface water run-off. It is recommended that

             Milford consider the development of a local comprehensive stormwater

             management plan to guide and coordinate thefuture development of the

             city's watersheds.

                                        -71-

        0         An effective stormwater management plan would provide a balanced

             and flexible run-off control program by coordinating improvements to

             the existing drainage facilities and planning facilities for future

             use on a watershed basis. Development proposals are generally

             reviewed individually for their effect on flow rates. With a

             comprehensive plan, however, future development of each watershed

             would be examined with respect to the cumulative increases in peak

             run-off rates throughout the watershed. A stormwater run-off

             management solution for each development proposal would be based on,

             and supportive of, the plan for the entire basin. A stormwater

             management plan would thereby serve to reduce the impact of

             urbanization on the riverine system, including flooding, channel

             instability and potential erosion or siltation problems, and preserve

             the natural qualities of the watershed for aesthetic, recreational,

             fisheries and wildlife purposes.

             viI. conclusions

               A. Milford has developed good floodplain management measures in the

             following areas:

                  1. Warning, Damage Assessment and Natural Disaster Annexes
                      of the Emergency Operations Plan

                  2. Floodplain Zoning Regulations

               B. Milford could improve its flood management programs in the

             following areas:

                  1. Development of a "flood annex" to the city's Emergency
                     operations Plan or Natural Disaster Plan, specifically
                     addressing flood warning, flood preparedness and flood
                     mitigation efforts and development of an automated flood

                                         -72-

                     warning system.

                  2. Development and implementation, on a continuing basis, of
                     a community education/public awareness program for resi-
                     den--t-s --- o-f Milford's flood zones.

                  3. Increase the flood insurance coverage among owners of
                     res-idential, commercial and industrial property located
                     in flood zones.

                  4. Maintaining stringent enforcement of floodplain zoning
                     regulations.

                  5. Adoption of municipal road, bridge and culvert design
                     standards to the 100 year flood standard.

                  6. Development of a comprehensive stormwater management
                     plan.

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