Session No. 41

Course Title: Coastal Hazards Management

# Session Title: Hazard Mitigation Planning V

# Author: Anna K. Schwab, University of North Carolina at Chapel Hill

**Time: 150 minutes**

**Objectives:**

**Objective 41.1** Class discussion and debate regarding Step Four of
the planning process: "Form Interim Conclusions."

**Objective 41.2** Class discussion and debate regarding Step Five of
the planning process: "Establish Values and Goals."

**Objective 41.3** Become familiar with the sixth step in the mitigation
planning process: "Formulate Mitigation Policies."

**Scope:**

Session 41 will begin with a discussion and debate among the students
regarding the fourth step in the planning process: "Form Interim
Conclusions." The students will then discuss and debate the fifth step,
"Establish Values and Goals," and together the class will create goal
statements for the selected coastal community. The point of these
discussions is to get the students thinking about the ultimate purpose
behind the mitigation planning process. Through lectures and class
presentations up to this point, the students have gathered data,
conducted analyses, and assembled information regarding the selected
coastal community's vulnerability to natural hazards. However, it is
important for the students to realize that these activities should not
be seen as mere academic exercises. In the "real world," the planning
steps undertaken thus far would lead to some serious consequences for a
local government. The community would have to decide whether it would be
willing to expend the considerable resources necessary to continue with
the planning process. The community would also need to formulate goals,
create mitigation policies to reach those goals, and commit itself to
implementing those policies -- an undertaking which can be, and at times
probably should be politically contentious.

Following the class discussion and debate on Steps Four and Five, the
remaining class time will be devoted to a lecture on the sixth step in
the planning process, "Formulate Mitigation Policies," based in large
part on the assigned reading material: *Keeping Natural Hazards From
Becoming Disasters: A Mitigation Planning Guidebook for Local
Governments*.

**Readings:**

*Student and Instructor Readings:*

NC Division of Emergency Management, Hazard Mitigation Section, Risk
Assessment and Planning Branch. May, 2003. *Keeping Natural Hazards From
Becoming Disasters: A Mitigation Planning Guidebook for Local
Governments*, pp. 68-84.

> (Available in pdf format from NC Division of Emergency Management:
> <http://www.dem.dcc.state.nc.us/mitigation/planning_publications.htm>)

FEMA. April 2003. *Developing the Mitigation Plan: Identifying
Mitigation Actions and Implementation Strategies*. Washington, D.C.:
FEMA 386-3, pp. 2-1 through 2-6, "identify and prioritize mitigation
actions;" pp.2-12 through 2-31,"evaluate, select and prioritize
mitigation actions;" pp. 3-1 through 3-11, "prepare an implementation
strategy."

FEMA. August 2003. *Bringing the Plan to Life: Implementing the Hazard
Mitigation Plan.* Washington, D.C.: FEMA 386-4, pp. 2-1 through 2-11,
"implement the plan recommendations."

*Additional Student and Instructor Readings:*

NC Division of Emergency Management, Hazard Mitigation Section, Risk
Assessment and Planning Branch. September 2002. *Tools and Techniques:
An Encyclopedia of Strategies to Mitigate the Impacts of Natural
Hazards*. (Available in pdf format from NC Division of Emergency
Management:
<http://www.dem.dcc.state.nc.us/mitigation/planning_publications.htm>)

NC Division of Emergency Management, Hazard Mitigation Section, Risk
Assessment and Planning Branch. October 1998. *Tools and Techniques:
Putting a Hazard Mitigation Plan to Work.* (Available in pdf format from
NC Division of Emergency Management:
<http://www.dem.dcc.state.nc.us/mitigation/planning_publications.htm>)

## PowerPoint Slides

**PowerPoint 41.1** Tasks in Step Six: Formulate Mitigation Policies

**PowerPoint 41.2** Task 6.1: Prioritize the Geographic Planning Areas

**PowerPoint 41.3** Mitigation Strategy #1: Prevention

**PowerPoint 41.4** Mitigation Strategy #2: Property Protection

# PowerPoint 41.5 Mitigation Strategy #3: Natural Resource Protection

# PowerPoint 41.6 Mitigation Strategy #4: Structural Projects

**PowerPoint 41.7** Mitigation Strategy #5: Public Information

**PowerPoint 41.8** Task 6.3: Formulate Selection Criteria

**PowerPoint 41.9** Worksheet #5: Geographic Planning Area Policies

**PowerPoint 41.10** Map 12: Policy Map for the Riverine Hazards
Planning Area

**PowerPoint 41.11** Map 13: Policy Map for the Coastal Hazards Planning
Area

**PowerPoint 41.12** Worksheet #5A: Community Mitigation Action Plan

**PowerPoint 41.13** Map 14: Community Policy Map

\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_\_

**General Requirements:**

The first objective of Session 41 will consist of discussion and debate
among the students regarding the fourth step in the planning process:
"Form Interim Conclusions." Suggested questions are included that may be
used by the instructor to spark discussion.

During Objective 41.2 the students will discuss the fifth step in the
planning process, "Establish Values and Goals," and the class as a whole
will formulate goal statements for the selected coastal community. The
instructor may wish to use a white board, overhead projector, or flip
chart to write down the goals (or assign a student to do so) as they are
formulated by students. Questions suggested in Objective 41.2 may be
used to get the discussion started. Alternatively, the instructor may
place the PowerPoint slide of Worksheet #4 (as presented in Session 40,
PowerPoint 40.5) on the screen to use as a guide for creating goal
statements by the students.

The remaining class time (Objective 41.3) should be presented as lecture
supported by PowerPoint slides.

**Objective 41.1** Class discussion and debate regarding Step Four of
the planning process: "Form Interim Conclusions."

**Requirements:**

The instructor may begin the discussion by posing some of the questions
suggested here, but should rely primarily on student responses and
debate. Those students who have already given presentations may want to
add their insight to further the discussion based on what they learned
while preparing the planning steps conducted thus far.

**Remarks:**

Suggested questions to foster discussion regarding Step Four in the
planning process:

1.  Based on previous class presentations about our selected coastal
    community, what have we learned thus far about our community's
    vulnerability to coastal hazards?

2.  Is the community faced with multiple hazard threats? Are some
    hazards of more concern than others? In what way? Will the different
    hazards require a different level of commitment on the part of the
    local government for mitigation?

3.  Are some areas of the community more susceptible to natural hazards
    than others? Will these areas require a different level of
    commitment on the part of the local government for mitigation?

4.  What have we learned thus far about our community's capability to
    address its hazard problems? Do local elected officials have the
    political will to engage in mitigation? Are local residents educated
    and aware of the threats that face them?

5.  Is the level of risk facing the community acceptable (requiring no
    further action) or unacceptable (calling for the preparation of a
    full-blown hazard mitigation plan)?

6.  If you were a member of the planning team for this local community,
    what issues would you address at a public meeting? How would you
    solicit public comment regarding the steps taken so far, and whether
    the team should proceed further with the planning process?

7.  What is your conclusion? Should the community proceed with the
    planning process, and craft mitigation policies and programs to
    reduce its vulnerability to natural hazards?

**Objective 41.2** Class discussion and debate regarding Step Five of
the planning process: "Establish Values and Goals."

**Requirements:**

Through discussion and debate, the class as a whole should formulate
goal statements for the selected coastal community. The instructor may
wish to use a white board, overhead projector, or flip chart to write
down the goals (or assign a student to do so) as they are formulated by
students. Questions suggested here may be used to get the discussion
started. Alternatively, the instructor may place the PowerPoint slide of
Worksheet #4 (as presented in Session 40, PowerPoint 40.5) on the screen
to use as a guide for creating goal statements by the students.

**Remarks:**

Suggested questions to foster discussion regarding Step Four in the
planning process:

1.  Based on previous class presentations and discussions, create a list
    of goal categories that fit the selected coastal community's
    mitigation needs. Categories that can be used include:

    -   general goal statements

    -   goal statements regarding future development

    -   goals for existing vulnerable structures and infrastructure

    -   goals to set priorities for redevelopment following a hazard

    -   goals concerning public education and outreach about hazards and
        mitigation

    -   goals regarding natural resource protection to promote hazard
        mitigation ends

2.  What sorts of goal statements can you speculate would be found in
    existing local documents that coincide with mitigation values of the
    community? Consider goals from the following types of documents:

    -   Local Comprehensive Plan/Land Use Plan

    -   Capital Improvements Plan

    -   Zoning and Subdivision Ordinances

    -   Stormwater Management Plan

    -   Floodplain Ordinance

    -   Emergency Management Plan

    -   Transportation Plan

    -   Historic Preservation Plan

    -   Park/Open Space/Recreation Plan

3.  What are some new goal statements that the selected coastal
    community may want to consider for its mitigation plan?

4.  How can mitigation goals be formulated to link with other community
    goals? For example:

    -   Protect water quality

    -   Preserve open space

    -   Protect cultural and historic resources

    -   Maintain a healthy economy

    -   Other community values?

**Objective 41.3** Become familiar with the sixth step in the mitigation
planning process: "Formulate Mitigation Policies."

**Requirements:**

The content should be presented as lecture, supported by PowerPoint
slides.

The following slides will be used during this objective:

**PowerPoint 41.1** Tasks in Step Six: Formulate Mitigation Policies

**PowerPoint 41.2** Task 6.1: Prioritize the Geographic Planning Areas

**PowerPoint 41.3** Mitigation Strategy #1: Prevention

**PowerPoint 41.4** Mitigation Strategy #2: Property Protection

# PowerPoint 41.5 Mitigation Strategy #3: Natural Resource Protection

# PowerPoint 41.6 Mitigation Strategy #4: Structural Projects

**PowerPoint 41.7** Mitigation Strategy #5: Public Information

**PowerPoint 41.8** Task 6.3: Formulate Selection Criteria

**PowerPoint 41.9** Worksheet #5: Geographic Planning Area Policies

**PowerPoint 41.10** Map 12: Policy Map for the Riverine Hazards
Planning Area

**PowerPoint 41.11** Map 13: Policy Map for the Coastal Hazards Planning
Area

**PowerPoint 41.12** Worksheet #5A: Community Mitigation Action Plan

**PowerPoint 41.13** Map 14: Community Policy Map

**Remarks:**

### Step Six: Formulate Mitigation Policies

-   During the previous two steps, the community concluded that it faces
    an unacceptable risk to natural hazards, and goals were created to
    indicate the community's level of commitment to reduce its risk.

-   Now the action part of the planning process will begin. The policy
    section of the plan will identify, evaluate, and analyze what needs
    to be done.

    -   It is important to refer to the background studies performed
        earlier, so that the areas identified as most vulnerable will be
        addressed.

    ```{=html}
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    ```
    -   **Tasks** to be performed to complete **Step Six** are:

> **\[PowerPoint 41.1 Tasks in Step Six: Formulate Mitigation
> Policies\]**
>
> 6.1 Prioritize the Geographic Planning Areas
>
> 6.2 Match mitigation strategies to Geographic Planning Areas
>
> 6.3 Formulate selection criteria
>
> 6.4 Formulate mitigation policies to carry out selected strategies
>
> 6.4(a) Formulate policies for each Geographic Planning Area (Worksheet
> #5)
>
> 6.4(b) Prepare a policy summary for the entire community (Worksheet
> #5A)

5.  Organize Policies according to function

### Task 6.1: Prioritize the Geographic Planning Areas

-   Few local governments have the resources to meet all their
    mitigation goals and solve all their hazard problems immediately.

    -   Setting priorities allows the community to determine **which
        problems are most critical** to the health and safety of the
        population.

> **\[PowerPoint 41.2 Task 6.1: Prioritize the Geographic Planning
> Areas\]**

-   **Questions** to ask when prioritizing the Planning Areas include:

    -   Which Geographic Planning Areas contain a significant number of
        people at risk?

    -   Is a major portion of the community tax base located in one
        particular Planning Area?

    -   Which Planning Areas contain critical facilities?

    -   What is the type, probability and estimated magnitude of the
        hazards that threaten each Planning Area?

-   Create a **list** of the Geographic Planning Areas in **order of
    their urgency**.

### Task 6.2: Match mitigation strategies to Geographic Planning Areas

-   Now that the Geographic Planning Areas are prioritized, we can
    concentrate on one problem at a time.

-   Strategies for each Planning Area fall into five broad categories,
    adapted from guidance materials issued by the Community Rating
    System (CRS).

    -   Each strategy category consists of many different types of
        specific policy, or activities.

-   **Types of Mitigation Strategies** include the following:

> **\[PowerPoint 41.3 Mitigation Strategy #1: Prevention\]**

1.  **Prevention:**

Prevention activities are intended to keep hazard problems from getting
worse. They are particularly effective in reducing a community's future
vulnerability, especially in areas where development has not occurred or
capital improvements have not been substantial. Examples of preventive
activities include:

-   Planning

-   Zoning/subdivision

-   Open space preservation

-   Floodplain regulations

-   Stormwater management

-   Drainage system maintenance

-   Capital improvement programs

-   Shoreline setbacks

**\[PowerPoint 41.4 Mitigation Strategy #2: Property Protection\]**

2.  **Property Protection**

Property protection measures protect existing structures by modifying
the building to withstand hazardous events, or removing structures from
hazardous locations. Note that in this instance, "property" refers to
built structures. Examples of prevention strategies include:

-   Relocation

-   Acquisition

-   Building elevation

-   Critical facilities protection

-   Windproofing

-   Floodproofing

-   Sewer backup protection

-   Insurance

-   Seismic retrofit

-   Safe rooms

> **\[PowerPoint 41.5 Mitigation Strategy #3: Natural Resource
> Protection\]**

3.  **Natural Resource Protection**

Natural resource protection activities reduce the impacts of natural
hazards by preserving or restoring natural areas and their mitigative
functions. Such areas include floodplains, wetlands and dunes. Parks,
recreation, or conservation agencines and organizations often implement
these measures. Examples include:

-   Floodplain protection

-   Beach and dune preservation

-   Riparian buffers

-   Fire resistant landscaping

-   Fuel breaks

-   Erosion/sediment control

-   Wetland preservation/restoration

-   Habitat preservation

-   Slope stabilization

# \[PowerPoint 41.6 Mitigation Strategy #4: Structural Projects\]

4.  **Structural Projects**

Structural mitigation projects are intended to lessen the impact of a
hazard by modifying the environment or natural progression of the hazard
event. They are usually designed by engineers and managed or maintained
by public works staff. Examples include:

-   Reservoirs/retention pools

-   Levees/floodwalls

-   Seawalls/groins/jetties

-   Bulkheads

-   Revetments

-   Berms

-   Diversions/Channel modification

-   Beach nourishment

-   Storm sewers

> **\[PowerPoint 41.7 Mitigation Strategy #5: Public Information\]**

5.  **Public Information**

> Public information activities are used to advise residents, business
> owners, potential property buyers, and visitors about hazards,
> hazardous areas, and mitigation techniques they can use to protect
> themselves and their property. Examples of measures to educate and
> inform the public include:

-   Outreach projects

-   Media events

-   Hazard map information

-   Real estate disclosure

-   Warning systems

-   Library

-   Technical assistance

-   School children education

### Task 6.3: Formulate Selection Criteria

-   Potential mitigation **policies** must **pass certain criteria** set
    by the community before they can be considered for implementation.

    -   One essential criterion involves whether the proposed policy is
        **technically feasible**. In other words, will it solve the
        problem?

    -   Other criteria should be determined according to **individual
        community**'s needs.

-   **Suggested questions** to pose when formulating selection criteria
    include:

> **\[PowerPoint 41.8 Task 6.3: Formulate Selection Criteria\]**

-   Will the policy solve the problem it is intended to solve?

-   Does the policy meet at least one community mitigation goal?

-   Does the policy comply with all federal, state, and local
    regulations?

-   Will there be a beneficial or neutral impact on the environment?

-   Will the benefits outweigh the costs?

-   Is funding available or potentially available?

-   Does sufficient management capability exist to implement and
    administer the policy?

-   Is the mitigation policy cost effective, environmentally sound, and
    technically feasible?

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-   Most projects funded by FEMA must meet the last of these criteria in
    order to be eligible.

**[Task 6.4: Analyze and formulate mitigation policies to carry out
selected strategies.]{.underline}**

-   There are two parts to this task:

    -   **Task 6.4(a):** Formulate policies for each Geographic Planning
        Area (*Worksheet #5* and maps)

    -   **Task 6.4(b):** Prepare a policy summary for the entire
        community (*Worksheet #5A* and maps)

### Task 6.4(a): Formulate policies for each Geographic Planning Area

-   Strategies have already been assigned to each Geographic Planning
    Area. This task will create more specific **policies to carry out
    those strategies**.

-   **Brainstorming** sessions can be helpful to develop mitigation
    alternatives and possibilities.

    -   Some ideas may involve **new initiatives, programs, and
        activities** for the community.

    -   Other possibilities may include the **continuation of existing
        efforts** that have proven to be effective in reducing damage.

    -   Other recommendations may involve **changes to existing
        policies** that were identified in the capability assessment as
        detrimental to mitigation efforts.

    -   Policy recommendations can consist of large scale projects, as
        well as small, less intensive initiatives.

```{=html}
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```
-   **Worksheet #5** provides a way to organize policy recommendations
    for each Geographic Planning Area. A separate Worksheet #5 is to be
    filled out for each Geographic Planning Area.

**\[PowerPoint 41.9 Worksheet #5: Geographic Planning Area Policies\]**

-   ***Policy:*** Column one of Worksheet #5 is a list of the policies
    formulated during the brainstorming of Task 6.4(a), including new
    initiatives, continuation and support of existing policies, and
    recommended changes to existing policies.

-   ***Type(s) of hazard***: The second column lists the type of hazard
    that each policy is to mitigate.

-   ***Funding***: The third column provides information about a funding
    source (or potential funding source) for each of the policies.
    Information includes the source of the funds, the estimated amount,
    and whether a local match is required (for any state and local grant
    programs)

-   ***Responsible Party/Start & Completion Dates***: The next column
    indicates who (or which agency) is assigned responsibility for
    implementing each policy, as well as a time frame for
    implementation.

-   ***Benchmarks & Indicators***: The fifth column lists benchmarks and
    indicators to use to monitor and evaluate the policy as it is
    implemented.

-   ***Priority***: The final column indicates the priority level for
    each policy.

### Mapping Task 6.4(a): Planning Area Policy Maps

-   Worksheet #5 can help to **create a map to graphically illustrate
    the policies** created in Step Six.

\[PowerPoint 41.10 Map 12: Policy Map for the Riverine Hazards Planning
Area\]

-   **Map 12** shows several **mitigation strategies** for the Riverine
    Hazards Planning Area, including:

```{=html}
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```
-   Preventive

-   Property protection

-   Natural resource protection

    -   **Compare Map 12** with **Map 8** "*Current Conditions*"
        \[PowerPoint 38.16\] and **Map 10** "*Existing Zoning*"
        \[PowerPoint 38.18\] for the Riverine Hazard Planning Area to
        see how changes in policy have been proposed for this Area

    ```{=html}
    <!-- -->
    ```
    -   **Policies** that appear on Map 12 include:

        -   Zoning has been changed in this area so that prior
            high-density residential zones near the river are now
            low-density with open space for a greenway.

        -   The school that had been scheduled to be built here will be
            sited elsewhere in a location safe from flooding.

        -   Repetitive damage structures on the eastern riverbank have
            been designated for acquisition and relocation. The land is
            designated for a greenway (open space)

        -   Repetitive damage structures east of the road will be
            elevated.

        -   The critical facilities (wastewater treatment plant,
            historic church, daycare center, warehouse) have been slated
            for acquisition/relocation.

        -   The northeast corner has been rezoned for low-density
            residential instead of commercial uses.

> **\[PowerPoint 41.11 Map 13: Policy Map for the Coastal Hazards
> Planning Area\]**

-   **Map 13** shows several **mitigation strategies** for the Coastal
    Hazards Planning Area, including:

```{=html}
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```
-   Preventive

-   Property protection

-   Natural resource protection

-   Structural mitigation

    -   **Compare Map 13** with **Map 9** "*Current Conditions*"
        \[PowerPoint 38.17\] and **Map 11** "*Existing Zoning*"
        \[PowerPoint 38.19\] for the Coastal Hazards Planning Area to
        see how changes in policy have been proposed for this Area

    ```{=html}
    <!-- -->
    ```
    -   **Policies** that appear on Map 13 include:

    ```{=html}
    <!-- -->
    ```
    -   Repetitive loss structures along the beach have been targeted
        for elevation

    -   Hotels and the junkyard are slated for acquisition/relocation

    -   The school is targeted for acquisition/relocation

    -   Repetitive loss structures in the middle will be
        acquired/relocated

    -   Zoning in the southern portion will be changed from commercial
        to low-density residential

    -   The northern portion has been rezoned from high-density to
        low-density residential

    -   Infrastructure scheduled for the northern section has been
        withdrawn, and that portion has been rezoned to low-density
        residential

    -   Beach renourishment has been proposed to protect the lighthouse

    -   Land in the middle of the Area has been zoned for openspace,
        leading to the beach area

    -   Additional, non-hazardous land in the business section has been
        rezoned to encourage mixed uses

**[Task 6.4(b): Prepare a policy summary for the entire
community.]{.underline}**

-   All the policies created for all the Planning Areas should be listed
    on **Worksheet #5A.**

> **\[PowerPoint 41.12 Worksheet #5A: Community Mitigation Action
> Plan\]**

-   This summary in Worksheet form will help prioritize the policies for
    the entire community.

```{=html}
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-   Worksheet #5A is a compilation of the all the Worksheet #5s that
    were prepared for individual Planning Areas in the community.

```{=html}
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-   A **narrative summary** of the policies listed in Worksheet #5A will
    describe the capabilities of the community to carry out each of the
    proposed policies, as well as the expected result of each policy.

### Mapping Task 6.4(b): Community Policy Map

-   A **map that illustrates all of the policies** proposed for all the
    Geographic Planning Areas helps to visualize how the entire
    community will be affected by the mitigation plan.

-   The community policy map can also **point out non-hazardous lands**
    where development can be encouraged.

> **\[PowerPoint 41.13: Map 14: Community Policy Map\]**

-   The **Community Policy Map** in PowerPoint 41.13 shows how the
    community has **redirected development** by zoning its safer areas
    in the middle of town to allow higher density residential
    development, commercial uses and public buildings in a mixed-use
    district.

    -   The community is not losing its tax base, nor displacing
        residents. Instead, the town has designed an **overall land use
        scheme** that shifts a substantial portion of its **tax base to
        safer locations**, encouraging future development to take place
        in non-hazardous areas.