Session No. 39

Course Title: Coastal Hazards Management

# Session Title: Hazard Mitigation Planning III

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

**Time: 50 minutes**

**Objectives:**

**Objective 39.1** Group 2 Presentation: Assess Hazard Vulnerability,"
followed by class critique

**Objective 39.2** Become familiar with the third step in the mitigation
planning process: "Assess Mitigation Capability."

**Scope:**

Session 39 will begin with a student presentation on the second step in
the planning process: "Assess Hazard Vulnerability," followed by a brief
class discussion and critique.

The remaining class time will be devoted to a lecture on the third step
in the planning process, "Assess Mitigation Capability," 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. 56-63.

> (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. 2-6 through 2-11, "identify and analyze state and local
mitigation capabilities."

## PowerPoint Slides

**PowerPoint 39.1** Tasks in Step Three: Assess Mitigation Capability

**PowerPoint 39.2** Task 3.1: Review Local Departments, Agencies,
Organizations

**PowerPoint 39.3** Task 3.2: Review Existing Policies, Programs,
Ordinances

**PowerPoint 39.4** Task 3.3: Review Legal Capability

**PowerPoint 39.5** Task 3.4: Review Fiscal Capability

**PowerPoint 39.6** Task 3.5: Review the "Political Climate"

**PowerPoint 39.7** What to Look for During the Capability Assessment

**PowerPoint 39.8** Worksheet \# 3: Community Capability Assessment

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**General Requirements:**

The first 25 minutes of the session will consist of the student
presentation by Group 2 on the second step in the planning process:
"Assess Hazard Vulnerability." The Instructor will then lead a class
discussion and critique of the presentation for the next 5-10 minutes.

The remaining class time should be presented as lecture supported by
PowerPoint slides.

**Objective 39.1** Group 2 Presentation: Assess Hazard Vulnerability,"
followed by class critique

**Requirements:**

The instructor should make sure that the students have access to all
equipment and materials needed for their presentation, such as
PowerPoint projector, overhead projector, white board, etc. The
instructor may wish to designate a time-keeper to make sure the
presentation is made within the amount of allotted time (25 minutes,
with about 5-10 minutes of critique by other students.

**Remarks:**

**Suggested questions** to pose regarding the presentation of Step Two
in the planning process:

1.  Does the presentation include a description of the community in
    terms of major physical features?

2.  Does the description of the community include identification of
    developed areas, undeveloped areas, and scheduled infrastructure
    areas? Are maps of these areas included?

3.  Does the Group identify critical facilities in the community? Are
    the facilities described in terms of function, size, importance,
    replacement value and siting? Are critical facilities identified on
    a map?

4.  Does the Group identify hazardous locations? Are individual hazard
    areas mapped? Did the Group prepare a composite (all-hazards)
    exposure description? Did the Group prepare an all-hazards map?

5.  Does the Group identify where hazardous areas intersect with
    community features? Are these areas mapped?

6.  Has the Group identified repetitive loss structures?

7.  Did the Group create and analyze Geographic Planning Areas?

8.  Has each member of the Group prepared a narrative description of the
    hazards and their effects on the community?

9.  Are sources of data and information listed?

10. Is Worksheet \# 1 completed? Does it make sense based on the hazard
    identification information presented?

**Objective 39.2** Become familiar with the third step in the mitigation
planning process: "Assess Mitigation Capability."

**Requirements:**

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

The following slides will be used during this objective:

**PowerPoint 39.1** Tasks in Step Three: Assess Mitigation Capability

**PowerPoint 39.2** Task 3.1: Review Local Departments, Agencies,
Organizations

**PowerPoint 39.3** Task 3.2: Review Existing Policies, Programs,
Ordinances

**PowerPoint 39.4** Task 3.3 Review Legal Capability

**PowerPoint 39.5** Task 3.4: Review Fiscal Capability

**PowerPoint 39.6** Task 3.5: Review the "Political Climate"

**PowerPoint 39.7** What to Look for During the Capability Assessment

**PowerPoint 39.8** Worksheet \# 3: Community Capability Assessment

**Remarks:**

### Step Three: Assess Mitigation Capability

-   **Step Three** of the planning process will analyze the community's
    current **capacity to address the threats** that natural hazards
    pose.

-   Step Three **identifies and evaluates existing policies**,
    practices, programs, regulations, and activities that **either
    increase or decrease the jurisdiction's vulnerability** to natural
    hazards.

    -   The Capability Assessment helps discover **positive things**
        already being done and need to be continued.

    -   The Capability Assessment also identifies policies that may be
        **hindering mitigation** efforts or even **exacerbating hazard
        risks.**

**[Tasks in Step Three:]{.underline}**

> **\[PowerPoint 39.1 Tasks in Step Three: Assess Mitigation
> Capability\]**

-   A summary of the tasks in Step Three includes:

1.  Review the various local departments, agencies and organizations
    that have some bearing on hazards and hazard mitigation

2.  Review existing policies, programs, and ordinances that may affect
    vulnerability

3.  Review the community's legal capability

4.  Review the community's fiscal capability

5.  Review the community's "political climate"

    -   We will go over these steps briefly today, as explained further
        in the reading material, *Keeping Natural Hazards From Becoming
        Disasters: A Mitigation Planning Guidebook for Local
        Governments*.

### Task 3.1 Review the various local departments, agencies and organizations that have some bearing on hazards and hazard mitigation

> **\[PowerPoint 39.2** **Task 3.1: Review Local Departments, Agencies,
> Organizations\]**

-   This task involves **creating a list** of all the **local government
    departments, agencies and organizations** that have a direct impact
    on mitigation.

    -   These are the departments that have a **specific
        responsibility** to carry out mitigation activities or control
        hazards

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    -   **Describe the responsibilities** of each agency with regards to
        mitigation.

        -   *For example*, the public works department is responsible
            for drain system maintenance

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    -   Also list other local departments that may not have a mandate or
        direct correlation to mitigation or levels of vulnerability, but
        may have a **de facto impact**

        -   *For example*, the school board does not consider hazards
            when selecting new school building sites.

Task 3.2: Review existing policies, programs, and ordinances that may
affect vulnerability

> **\[PowerPoint 39.3 Task 3.2: Review Existing Policies, Programs,
> Ordinances\]**

-   This task involves **describing mitigation initiatives** that the
    community may have in place. This includes a description of local

    -   policies

    -   programs

    -   ordinances

    -   regulations

    -   other activities

> that have a direct bearing on mitigation and vulnerability levels

-   Also describe policies and practices that are **not directed at
    mitigation or natural hazards per se,** but nevertheless may have
    some effect

    -   *For example*, a greenway program that could be used to acquire
        floodplain properties

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    -   Some of these directives will be found in **formal adopted
        documents**, such as local

        -   Land use plan

        -   Zoning ordinance

        -   Stormwater management plan, etc

    -   Other **practices or policies may be unwritten** -- it's just
        the way things are done in the community

        -   *For example*, a local practice of allowing public access to
            the beach over the dunes, causing deterioration of the
            dunes' protective features

-   Consider also **policies** and regulations enacted by the **state
    and federal governments**

    -   Even though the **local community may have little control** over
        state and federal policy, including these activities in the
        capability assessment can contribute to **more informed
        decision-making**.

Task 3.3 Review the community's legal capability.

> **\[PowerPoint 39.4 Task 3.3 Review Legal Capability\]**

-   The previous two tasks focused on policies and programs that are
    already in place.

-   **Task 3.3** involves **listing the additional powers available to
    local governments** to do more

    -   In most states, local governments are granted a wide variety of
        **land use tools, regulatory authority and enforcement
        mechanisms**.

    -   The use of these tools for mitigation purposes is limited only
        by the **creative application** by a local jurisdiction

        -   *For example*, most local jurisdictions are granted
            **zoning, planning, subdivision** and other powers. Could
            these be used effectively for mitigation purposes?

        -   Other tools that may be available involve **taxation
            schemes, impact fees,** careful **capital expenditure**
            planning and the like.

        -   The power to **acquire land** is another powerful tool with
            the potential to decrease vulnerability levels when used to
            remove hazardous land from development potential

### 

### Task 3.4: Review the community's fiscal capability

> **\[PowerPoint 39.5 Task 3.4:Review Fiscal Capability\]**

-   **Funding** is an **essential element** for successful development
    and implementation of **mitigation strategies**.

-   Task 3.4 involves creating a **list of possible financial
    resources** for mitigation initiatives

-   Often funding is already available within a community's existing
    budget, with just a **reallocation** or **shift in priorities**.

    -   Look at the local annual **operating budget**

    -   Review local **capital budget** programs

    -   Seek out **private, non-profit**, and **business donations**
        from local contributors:

        -   In-kind donations (supplies, materials, manpower)

        -   Cash donations (charitable donations)

-   Investigate **federal and state funding** programs for mitigation or
    related issues

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-   Some government funding programs are available in the **pre- or
    post-disaster** context, such as:

    -   Hazard Mitigation Grant Program (HMGP)

    -   Pre-Disaster Mitigation Program (PDM)

    -   Public Assistance Program (PA)

Task 3.5 Review the community's "political climate."

> **\[PowerPoint 39.6 Task 3.5: Review the "Political Climate"\]**

-   A community can have at its disposal unlimited funding and legal
    resources, but without the **political willpower to address hazard
    threats**, nothing will be accomplished

-   In some communities, there may be a **reluctance** on the part of
    citizens or local officials **to be proactive**.

    -   In times of fiscal restraint, **expenditure of limited
        resources** may be a challenge

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-   When crafting a mitigation plan, the **political climate should be
    assessed carefully**, and this will vary dramatically from community
    to community.

-   Sometimes the **context** in which new ideas are presented can make
    all the difference.

    -   Demonstrating the **cost-savings of mitigation strategies** can
        often go a long way to making mitigation initiatives more
        palatable to elected officials and their constituents.

-   A related factor is the **level of awareness** of community members
    as to the threat actually posed by natural hazards

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-   **Education and outreach** may be necessary to inform the citizenry
    about natural hazards, their potential impact, and possible
    mitigation strategies.

### What to Look For During the Capability Assessment 

> **\[PowerPoint 39.7 What to Look For During the Capability
> Assessment\]**

-   Here is a sample of the **types of policies, programs, practices,
    regulations and activities** to review during the Capability
    Assessment: (for more in-depth descriptions of the questions to ask
    regarding local policies, see the Guidebook)

    -   Zoning Ordinance:

        -   Are hazardous areas zoned for development?

        -   Is there adequate staffing to ensure compliance with the
            zoning laws?

        -   Are variances too easy to obtain?

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    -   Subdivision Ordinance:

        -   Does the subdivision ordinance restrict subdiving land in
            known hazard areas?

        -   Must developers limit or mitigate the impact of development
            on known hazards (including increases in stormwater flow)

        -   Do set-backs align with hazard demarcations?

        -   Must new construction be hazard-resilient?

# Comprehensive Plan/Land Use Plan

-   Does the plan designate hazard areas as inappropriate for
    development?

-   Is hazard-prone open space designated for acquisition?

# Capital Improvements Plan/Capital Facilities Plan

-   Does the CIP restrict extension of infrastructure into hazardous
    areas?

-   Must public facilities be located outside of hazardous areas, or
    made hazard-resilient if there is no alternative?

# Floodplain Management Plan

-   Does the plan include provisions for relocation, elevation or
    acquisition of flood-prone properties?

-   Do regulations restrict development that would increase flood
    heights?

-   Is the plan based on accurate, recent flood maps?

-   Does the plan include measures to protect the natural mitigative
    features of the floodplain?

# Building Codes, Permitting and Inspection

-   Does the community diligently enforce building codes?

-   Is the inspections department adequately staffed and trained?

-   Is there a moratorium in place for post-disaster reconstruction
    pending damage assessment?

-   Are there incentives for builders to construct above minimum code
    requirements?

# Parks, Greenways, Open Space

-   Does the community target hazard-prone land for acquisition?

# Stormwater Management Plan

-   Is there a regular maintenance schedule for drainage clearance?

-   Are culverts and drains adequately sized?

-   Does the plan control the amount of new impervious surfaces?

# Transportation Plan

-   Are future roads, bridges, infrastructure planned that would make
    hazardous roads more accessible for development?

-   Does the road system have adequate evacuation capacity?

# Conservation and Natural Resource Protection

-   Does the community have natural resource, riparian, wildlife or
    conservation programs in place?

-   Does the community prohibit filling or dredging of wetlands?

-   Does the community protect natural riparian land cover and stream
    buffers?

# Non-Profit, Conservation, Land Trust Organizations

-   Does the community partner with non-government organizations to
    acquire hazard-prone lands?

# Business and Industry

-   Do local employers have mitigation plans or business continuity
    plans in place?

-   Do local businesses carry sufficient flood insurance?

-   Do businesses contribute to local mitigation efforts?

# Regional Plans 

-   Does the community participate in regional planning (watershed, land
    use, transportation, etc)

# Historic Preservation Plans

-   Are historic buildings and sites protected from natural hazards?

### Worksheet #3: Community Capability Assessment

> **\[PowerPoint 39.8 Worksheet \# 3: Community Capability
> Assessment\]**

-   Worksheet #3 will help organize the information obtained during
    Tasks 3.1 through 3.5

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-   **Column 1: Policies and Programs**

    -   List existing and potential policies, practices, programs,
        regulations and activities as identified in the tasks of Step
        Three -- both negative and positive

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-   **Column 2: Policy/Program Status**

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-   In Column 2 indicate:

-   existing policies or programs that should be continued as is;

-   existing policies or programs that should be modified

-   new policies or programs to be instituted under existing authority

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-   **Column 3: Document Reference:**

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-   If the item is in a written document, refer to the document name and
    page number

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-   **Column 4: Effectiveness for Mitigation**

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-   Indicate the effectiveness level of each of the policies and
    programs listed to reduce hazard vulnerability.

-   Each policy can be ranked as high, medium or low, or negative for
    effectiveness

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-   **Column 5: Rationale for Effectiveness**

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-   Explain how each policy or program helps or hinders mitigation
    efforts.

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-   **Column 6: Recommendations for Incorporating Into Hazard Mitigation
    Strategy**

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-   Make specific recommendations to change or continue the policies and
    programs listed

Conclusions:

-   Upon completion of the capability assessment, the community will
    have a **better understanding** of its **authorization and ability**
    to deal with natural hazards, as well as where policy can be
    enhanced or modified

-   This step also allows **recommendations** to be made to elected
    officials and decision-makers for change.