## Session No. 14

### **Course Title: Hazard Mapping and Modeling**

### **Session 14: Utilizing Mapping and Modeling in Hazard Mitigation Planning and Land Use**

**Prepared By: John C. Pine, Director, Disaster Science & Management,
Louisiana State University, Baton Rouge.**

### **Time: 4 hours**

**Objectives:**

**14.1 Able to define hazard mitigation and the contributions that
mapping and modeling make to reducing community vulnerability to the
adverse impacts of disasters**

**14.2 Understand the role and contribution that mapping and
environmental models make to the hazard mitigation planning risk
assessment process.**

######## 14.3 Able to explain how mapping and modeling fit within hazard mitigation strategies

**14.4.** **Able to identify and explain the type and nature of mapping
and modeling information that contributes to the development and
implementation of hazard mitigation and land use strategies.**

**Overall Goal: This course is to contribute to the reduction of the
growing toll (deaths and injuries, property loss, environmental
degradation, etc.) of disasters in the United States by providing an
understanding of the significant role of mapping and modeling in the
management of hazards.**

**Session Goal: Students in this session will understand how mapping and
modeling contribute to the tools of hazard mitigation and the reduction
of community vulnerability.**

**Scope:**

This session provides an examination of how mapping and modeling
contribute to the goals of hazard mitigation and the reduction of
community vulnerability to the adverse impacts of disasters. The session
builds on several other modules from Breaking the disaster Cycle: Future
Directions in Natural Hazard Mitigation. In this course, Dr. David
Godschalk explains in detail the nature of hazard mitigation and many of
the strategies that can used to reduce the vulnerability of communities.
The present session in this class builds on his work and examines the
role of modeling and mapping within the hazard mitigation planning risk
assessment process. Godschalk explains two key elements that are
addressed in this session including the hazard mitigation planning risk
assessment process and hazard mitigation strategies. Students should
leave this session with a clearer understanding of how to use the
powerful tools of hazard modeling and the importance of communicating
with others using maps. A detailed look at hazard mitigation strategies
and tools is reviewed with an emphasis of how mapping sciences and
modeling contribute to the reduction of community vulnerability.

**Student Readings:**

Pine, John C., B. Sharky, B. Kennedy, and J. Edwards (2006). "A
Community Profile of the Lower Ninth Ward Neighborhood: A Case Study for
hazard mitigation strategies."

Deyle, R. E., S. P. French, et al. (1998). Chapter 5 - Hazard
Assessment: The Factual Basis for Planning and Mitigation. *Cooperating
with Nature: Confronting Natural Hazards with Land-Use Planning*. R. J.
Burby. Washington, D.C., John Henry Press.

Godschalk, D. R., E. J. Kaiser, et al. (1998). Chapter 4 - Integrating
Hazard Mitigation and Local Land-Use Planning. *Cooperating with Nature:
Confronting Natural Hazards with Land-Use Planning*. R. J. Burby.
Washington, D.C., John Henry Press, pp. 137-144.

Primer on Natural Hazard Management in Integrated Regional Development
Planning, Chapter 3 Section C. Part "Land-Use Evaluations Based on a
Systems View,"

[http://www.oas.org/dsd/publications/Unit/oea66e/ch03.htm#c.%20land%20use%20evaluations%20based%20on%20a%20systems%20view](http://www.oas.org/dsd/publications/Unit/oea66e/ch03.htm#c. land use evaluations based on a systems view)
and Section D "Assessing Natural Hazards in Land-Use Evaluations."
[http://www.oas.org/dsd/publications/Unit/oea66e/ch03.htm#d.%20assessing%20natural%20hazards%20in%20land%20use%20evaluations](http://www.oas.org/dsd/publications/Unit/oea66e/ch03.htm#d. assessing natural hazards in land use evaluations)

**Faculty Readings:**

Deyle, R. E., S. P. French, et al. (1998). Chapter 5 - Hazard
Assessment: The Factual Basis for Planning and Mitigation. *Cooperating
with Nature: Confronting Natural Hazards with Land-Use Planning*. R. J.
Burby. Washington, D.C., John Henry Press.

Godschalk, D. R., E. J. Kaiser, et al. (1998). Chapter 4 - Integrating
Hazard Mitigation and Local Land-Use Planning. *Cooperating with Nature:
Confronting Natural Hazards with Land-Use Planning*. R. J. Burby.
Washington, D.C., John Henry Press, pp. 137-144.

Primer on Natural Hazard Management in Integrated Regional Development
Planning,
(<http://www.oas.org/usde/publications/Unit/oea66e/begin.htm#Contents>)

Chapter 3 Section C. Part "Land-Use Evaluations Based on a Systems
View,"

> http://www.oas.org/dsd/publications/Unit/oea66e/ch03.htm#c.%20land%20use%20evaluations%20based%20on%20a%20systems%20view

Chapter 3 Section D "Assessing Natural Hazards in Land-Use Evaluations."

> [http://www.oas.org/dsd/publications/Unit/oea66e/ch03.htm#d.%20assessing%20natural%](http://www.oas.org/dsd/publications/Unit/oea66e/ch03.htm#d. assessing natural%25)20hazards%20in%20land%20use%20evaluations

**Requirements:**

The instructor should obtain copies of local Flood Insurance Rate Maps
or download them from the FEMA Web Map Store. A case study "Hazard
Mitigation Strategies in Rebuilding and Restoring the Lower 9^th^ Ward
in New Orleans, LA following Hurricane Katrina," should be made
available to the students in the class. Copies of the maps shown in this
session are also available for distribution to the students in an Adobe
format.

Determine if copies of the state hazard mitigation plan is available
from your State Office of Emergency Preparedness or from your local
county office of emergency preparedness. State plans can be obtained
directly from your State Hazard Mitigation Officer (SHMO) or from the
regional FEMA office, identified at
http://www.fema.gov/about/regoff.htm. The SHMO and Federal Hazard
Mitigation Officer (FHMO) can also recommend local hazard mitigation
plans for evaluation. The plans may be in digital form such as an Adobe
format. An alternative available at an increasing number of colleges and
universities is to scan in the documents and make them available via the
World Wide Web. This would allow students unlimited access to the
documents at any time of the day or night, and they could cut, paste,
and print out sections of the plans at will.

######## Remarks

######## 

**Objective 14.1 Able to define hazard mitigation and the contributions
that mapping**

> **and modeling make to reducing community vulnerability to the adverse
> impacts of disasters**

I. **Hazard Mitigation** (see Slide 2)

> A. Hazard mitigation is a component of the emergency management
> process where we **reduce risks** to people and property from natural
> and technological disasters. It involves **recognizing and adapting to
> hazards**, **increasing the resilience**, and **decreasing the
> vulnerability** of our natural, social, and built environments to the
> destruction that can occur as a result of hazardous events.
>
> B. Mitigation strategies that are taken should be based on informed
> public policy. **Maps and models are one source of information** in
> which to base policies and the selection of hazard mitigation
> strategies and practices (see Slide 3).
>
> C. FEMA's Flood Insurance Rate Maps **(FIRM)** are an excellent
> example of how we use mapping sciences and hazard models in
> implementing public policy. The FIRMs are tools that local communities
> use to guide local land use and other mitigation efforts. **Figure
> 14-1** shows a FIRM from an area of New Orleans that was heavily
> impacted by Hurricane Katrina.

*Note: Figure 14-1 is included in an Adobe format for use and analysis*.

**Question for the Class: Note the following points from the New Orleans
FIRM as see in Figure 14.1 (FEMA firm2252030115E).** (see Slide 2 and 3
-- The questions below and on Slide 3 refer to the FIRM in Slide 2 --
FEMA Flood Insurance Rate Map).

1.  **What is the date of the publication of the FIRM?**

2.  **The FIRM shows flood zones for areas of the City of New Orleans?
    Are there some areas of the City on high ground and not in the flood
    zone?**

3.  **The FIRM is based on some assumptions that influence the
    description of flood hazards in New Orleans. Given what happened in
    Hurricane Katrina, do you think that the FIRM was based on the
    assumption that flooding would result from storm surge and not levee
    breaches or that the pumping system in the City will not fail?**

4.  **Ask the class to explain how the FEMA FIRM fits within hazard
    mitigation.**

> D. FIRMS are based on **hazard modeling**; public officials are
> informed of the risks through hazard maps. Local actions to reduce
> damages from floods are based on FIRMS.

**Note: If the instructor has a FIRM from the local community, take a
look at it after discussing the New Orleans FIRM. FIRMS may also be
downloaded from FEMA's Map Store. From the FEMA home page, select the
FEMA Flood Map Store. You can view, print, or purchase digital maps on
line.**

http://msc.fema.gov/webapp/wcs/stores/servlet/CategoryDisplay?catalogId=10001&storeId=10001&categoryId=12001&langId=-1&userType=G&type=1

**Class Exercise:** *Distribute a copy of a local FIRM to the class and
ask them to review the map in small groups. When was the FIRM prepared?
Does the class believe that it is an accurate reflection of flood
hazards in their community? What does this type of map contribute to our
understanding of hazards and the hazard mitigation process? Why is the
FIRM such a powerful tool?*

**Question: How do we use a FIRM in the hazard mitigation process (see
Slide 5)? What are the limitations of these maps? How can local
communities overcome these limitations?**

> E. FIRMS allow local officials, finance, insurance, homeowners, and
> developers to make **strategic decisions**.
>
> F. By **displaying hazard areas**, appropriate hazard mitigation
> strategies can be identified that will help to reduce the adverse
> impacts of natural disasters. FIRMS support decision making with risks
> in mind. Many strategies and approaches can be used.
>
> 1\. Mitigation is more than a series of individual projects or
> strategies.
>
> 2\. It involves an awareness of natural systems, their potential
> impact upon human and built environments.
>
> 3\. Accurate modeling and mapping of hazards can reveal information
> about these natural systems and are critical in developing and
> maintaining **effective hazard mitigation** efforts.
>
> G. **Communities change** over time and the risks associated with
> natural and technological hazards do not stay the same. Hazard
> mitigation must change over time. It is a long term imitative.

II\. **Mitigation Strategies** (see Slide 6)

> A. Hazard mitigation strategies may be categorized in two modes. Both
> types of mitigation have proven to be effective in reducing damage and
> injury from disasters.
>
> 1\. **Avoidance of hazard areas,** by directing new development or
> relocating existing development to safe locations and away from
> predictable hazard areas, which often contain important protective
> features of the natural environment.
>
> 2\. **Resilience of the built environment,** by designing or
> strengthening buildings and infrastructure to withstand hazard forces.
>
> 3\. Strengthen critical infrastructure (bridges, buildings and
> utilities)
>
> B. Mitigation strategies can be used to strengthen hospitals, fire
> stations, and other critical facilities so that they can remain
> operational or reopen more quickly after an event.

C. In practice, **mitigation can take many forms**. It can involve
actions such as:

1\. Promoting sound **land use planning** based on known hazards

2\. Encouraging citizens to buy **flood insurance** to protect property

3\. Relocating or elevating structures out of the floodplain

4\. Securing shelves and water heaters to nearby walls for earthquake or
wind hazards

5\. Having hurricane straps installed to more securely attach a
structure's roof to its walls and foundation

6\. Developing, adopting, and enforcing effective building codes and
standards

7\. Engineering roads and bridges to withstand earthquakes, floods, or
storm surge

8\. Using fire-retardant materials in new construction as a prevention
tool

9\. Developing and implementing a hazard mitigation plan in your
business or community to reduce your susceptibility to hazards

> D. Mitigation initiatives take time and are **long term investments**
> in community sustainability.
>
> E. Mitigation strategies should be undertaken long before a disaster
> occurs as part of a **long-term strategy** to reduce or prevent the
> loss of life and property.
>
> F. Mitigation includes structural measures that make the built
> environment more **resilient to natural** hazards, as well as
> non-structural measures. Mitigation is more than making buildings
> safe, although that is an important aspect.
>
> G. Mitigation also involves planning that encourages better awareness
> of hazards, taking steps to **avoid losses**, and organizing to
> **reduce vulnerability**.

III\. **Goals of Hazard Mitigation** (see Slide 7)

> A. The intent is to focus on taking sustaining actions that result in
> economic and social benefits over time, not on those actions that
> might be considered emergency planning or emergency services.
>
> B. Mitigation also supports socio-economic continuity in the community
> by reducing the social upheaval that often accompanies a hazardous
> event. Individual and community property losses often result in
> personal and family stress for victims.

**Objective 14.2 Understand the role and contribution that mapping and**

> **environmental models make to the hazard mitigation planning risk
> assessment process.**

I. Hazard assessment is an initial step in the preparation of **hazard
mitigation planning** at the state or local level.

II\. Purpose of the Hazard Assessment (see Slide 9). The purpose of a
hazard assessment is to provide a clearer picture of the dangerous event
they are facing and the vulnerability of the community. The assessment
of hazards should evaluate the potential hazards in a jurisdiction or a
part of the community.

III\. Hazard assessment should focus on the following principal areas:
(Source: Godschalk, D.R. et al. (1997)

> A. **Hazard and community characterization**. Identifies the hazard
> threat facing the state;
>
> B. **Vulnerability assessment**. Identifies the people and property
> most likely to be affected by hazards; and
>
> C. **Risk assessment**. Determines the most severe threats based on
> their likely degree of harm.

IV\. Description of the Community Setting (baseline conditions).
Describes the community setting, that is, the physical, biological,
socio-economic, institutional, and capability that characterize the
study area. We call these parameters the baseline conditions. You may
think of this section as describing the appearance of the landscape.

QUESTION: As you examine the community, how does mapping contribute to
our understanding of the nature and character of the community?

A. **Physical characteristics** of the community including: geology,
geomorphology, soils, climate, meteorology, hydrology, and floodplains.

(See Slide 11 LIDAR Image of N.O. and Slide 12 FEMA FIRM from New
Orleans, LA -- 1984).

**QUESTION: Maps showing soil types, drainage basins, and land contours
provide an excellent basis for raising complex questions about the
potential impacts of hazards. What types of questions are raised by a
review of the following physical characteristics of the community? What
types of studies are necessary as part of the community risk assessment
process?**

B. **Natural elements** of the community including: Biological---flora,
fauna, and threatened and endangered species.

(See Slide 13. Land Use Classification for Vegetation, Slide 14 Holy
Beach, LA Cameron Parish, Pre Hurricane Rita and Slide 15 Holly Beach,
LA. after Hurricane Rita).

C. **Socio-economic:** land use, demographics (see Slides 16 - 18.
Population Count from Census 2000; Count of Single Family Units from
Census 2000; and : Count of Multi-Family Units from Census 2000),
cultural resources (see Slide19: Historic Districts of New Orleans),
economic conditions (see Slide 20: Value of Residential Housing by
Census Block in New Orleans), government and education buildings,
transportation network (see Slide 21). Schools & Hospitals in New
Orleans), hazardous sites (see Slide 22): Hazardous Materials Sites,
Schools & Hospitals). Additional data could include population by block,
a count of renters/homeowners, value of home, and parcel data for
residential classifications.

D. Institutional Framework: zoning to show subdivisions or business or
commercials areas (See Slide 23. Boundary of Neighborhood and Land Use
Classification by Parcels in New Orleans).

**Note:** See Slide 24. Major Transportation Infrastructure for an
example of infrastructure, highways, rails, water transport. See also
Slide 25. New Orleans City Parks & Recreational Areas with a background
image of a USGS 1:100,000 QUAD sheet.

**Question:** What do class members see is the advantage of displaying
and using the QUAD sheets as a base map for understanding institution
framework.

E. Capability of community to prepare for and respond to floods. This
includes the emergency response program and staff (see Slide 26: Police
and Fire Stations in New Orleans).

V. Characterization of the Hazard Event: Describes the hazards event by
portraying the severity, occurrence interval, spatial extent, and speed
of occurrence. (Source: Godschalk, D.R. et al. (1997)

> A. Delineate the **location and boundaries** of hazardous areas
> (flood, wind and storm surge hazards). In the case example of New
> Orleans, the hazard areas will be delineated by the flood zones as
> described by FIRMs and actual elevations of the water from Hurricane
> Katrina (see Slide 27: Characterization of the Hazard Event).
>
> The Flood depth grid map of Hurricane Katrina in New Orleans shown in
> Slide 28: Location, boundary and magnitude of Flooding in New Orleans)
> provides an estimate of flood levels from the levee breaches. This
> demonstrates the nature and extent of the flooding in an event. Note
> that flooding occurred in Orleans but in just limited areas of
> Jefferson Parish.

B. Examine the **potential severity of the event**

1\. Magnitude: depth, velocity, quantity

2\. Duration: time period

3\. Extent: coverage, area, expanse

C. **Occurrence interval**

1\. Frequency---annual, seasonal, monthly, daily, and meteorological
phenomena (e.g., winter frontal passage, hurricane, summer
thunderstorm).

> 2\. Probability---1% chance in a given year (100-year storm); 10%
> chance in a given year (10-year storm), etc.

**Note:** In modeling the 100 year storm events in New Orleans, the
Corps of Engineers and FEMA assumed that levee protection would hold.
Levee breaches were considered remote and not likely to occur and not to
be included in the flood modeling for the City.

D. Distribution across space

**Note:** Slide 28 "Location, boundary & magnitude of flooding in New
Orleans" provides a very clear graphic of the extent of the disaster
over the New Orleans metropolitan area.

*Slide 29:" Infrared Image of New Orleans showing Flooded Areas" shows a
view of New Orleans using an infrared camera from a commercial
satellite. FEMA procured this image daily for a thirty day period just
prior to and after the storm. Researchers from LSU used this image to
estimate the depth of the flooding during the rescue period just after
the storm hit the Gulf Coast. The dark areas in the image are the
flooded areas of New Orleans.*

> 1\. **Geographic location**---river valleys, dry lakebed, identifiable
> channel, and floodway.
>
> 2\. Presence on the **landscape**---seasonal, intermittent, or
> permanent.

E. **Speed of occurrence**

> 1\. Rapidity of Commencement---slow build-up, flashy, or surge.
>
> 2\. Life cycle---quick rise and fall, slow rise and fall, and quick
> rise and slow fall.

F. Assess the danger from **secondary hazards** (e.g., dam failures or
levee breaches).

**Note: Slides 30 "**Drainage Canals: New Orleans" and Slide 31 "Breach
of the Industrial Canal Levee New Orleans" shows the location,
distribution and extent of canals in New Orleans and an image of the
breach that flooded the Lower 9^th^ Ward in New Orleans.

> G. Assess the danger from hazardous facilities (e.g., nuclear plant,
> chemical plant) in hazard areas.

**Note: Slide 32 "**Murphy Oil Co. Prior to Hurricane Katrina," shows
the site layout of Murphy Oil Company. This was the site of a major oil
spill as a result of the storm surge from Hurricane Katrina. This slide
shows the site before the storm. Slide 33 "Murphy Oil Co. St. Bernard
Parish Post Hurricane Katrina," shows the site following the storm.

**Question: What value do high resolution images such as those
represented in Slides 32 and 33 have in understanding the nature of the
risks from hurricanes and accidental releases from oil refineries such
as the one owned by Murphy Oil Co.?**

> H. Assess the danger form exposure to hazardous materials in wake of
> natural disaster.

IV\. **Consequences and Vulnerability Assessment**---Direct (primary)
and Indirect (secondary) Effects of Hazards. Examine the consequences of
a hazard on a community. Overlay a disaster such as a 50-year flood onto
the baseline conditions. This process allows you to interpret the direct
(primary) and indirect (secondary) impacts on the elements in the
community

**Note: Slide 34: "**Hurricane Katrina Depth Grid," provides an example
from Katrina of impacted areas in New Orleans. The depth GRID can be
used by HAZUS-MH to determine the number and extent of damaged homes.
Further assessment may determine injuries, fatalities, property damage
to multi-family housing, commercial, industrial, educational, and
agriculture.

> A. Describe the number of people exposed to hazards or likely to be
> exposed in the future as areas develop, including special populations.
>
> B. Describe the **value of property exposed to hazards**. HAZUS-MH can
> identify the potential consequences to residential, commercial,
> industrial, agricultural, and education property. The program can also
> break down the analysis in additional sub-categories such as the type
> of residential housing.

**QUESTION: What map layers would be required to examine the following
types of impacts: Historic and cultural resources, critical facilities,
business or industry, or sensitive environmental areas** (see Slide
35)**?**

> C. Identify and characterize as **National Historic Trust Districts**,
> Sites or Areas.
>
> D. Describe the number of **critical facilities** (e.g., hospitals,
> bridges, schools, power plants, and police and fire stations), exposed
> to hazardous forces.

E. Identify **business and industry infrastructure** vulnerable to
hazards.

> F. Identify sensitive **environmental areas** vulnerable to hazards.

*Note that HAZUS-MH is one of the few modeling programs that provides
both direct and indirect effects from disasters. Suggest that members of
the class examine the FEMA HAZUS-MH web site and review the nature and
scope of the types of analysis provided in this program.*

G. **Direct Effects**

1\. Direct effects are impacts that are caused by the action and occur
at the same time and place (40 CFR 1508.8). These may also be called
**primary impacts** and apply to both adverse and beneficial impacts.

2\. Direct effects are **caused immediately by the event itself,** such
as a bridge washing out during a flood (FEMA, 2001a, p. ix).

H. **Indirect Effects**

> 1\. Indirect effects are impacts that are caused by the action and are
> **later in time** or farther removed in distance, but are still
> reasonably foreseeable (40 CFR 1508.8). They may also be called
> secondary impacts and applies to both adverse and beneficial impacts.
>
> 2\. Indirect effects usually involve **interruptions in asset
> operations** and community functions, also called functional use. For
> example, when a bridge is closed due to a flood, traffic is delayed or
> rerouted, which impacts individuals, businesses, and public services,
> like fire and police departments that depend on the bridge for
> transportation (FEMA, 2001a, p. ix).

V. **Risk Assessment**

> A. Include a systematic risk assessment in which the probabilities of
> hazardous events are combined with the likely degree of harm from
> those events, in order to determine which hazard threats are most
> worthy of the state\'s attention. Considered loss potential and
> potential impact if no action is taken or potential liability.

\[Source: Godschalk, D.R. et al. (1997). *Making Mitigation Work:
Recasting Natural Hazards Planning and Implementation.* Chapel Hill, NC,
Center for Urban and Regional Studies, The University of North Carolina
at Chapel Hill.\]

**QUESTION -- Slide 37** Hurricane Katrina Depth Grid provides a display
of the highest flooding levels in New Orleans following Hurricane
Katrina. The depths reflected in this map were established from infrared
satellite images following the storm (SPOT infrared images) and observed
high water marks by on site field inspectors from Louisiana State
University. What level of accuracy can you determine the water depth
from Slide 29? How could this map be improved to provide more
information for city planners in guiding hazard mitigation efforts
following this disaster?

*Note: Flooding can cause damage in a number of different ways
including: impact on residential, business, commercial, industry,
education etc. Floods also impact parks, marinas, transportation
infrastructure, & utilities. Discuss with the class how these maps
contribute to our understanding of damage as a result of flooding in the
community.*

######## 

######## Objective 14.3. Able to explain how mapping and modeling fit within hazard mitigation strategies.

A broad range of possible **mitigation measures** that a community may
wish to undertake depending on the particular hazard threats. There are
ten categories of suggested mitigation measures, ranging from general
initiatives like public awareness campaigns, to more focused actions,
such as beach nourishment. Many of the proposed **strategies, programs,
and actions** have as their goal the improvement of the state's overall
**system** for mitigating hazards, rather than attempting to mitigate
the hazards themselves. (\[Source: Godschalk, D.R. et al. (1997).

**CLASS ACTIVITY: A case study focusing on the Case Study 14.3.1 "Lower
Ninth Ward" in New Orleans is provided for this section of the class.
Have the students read the case study and be prepared to identify hazard
mitigation strategies that could be initiated for this neighborhood.
Notes will be included in the text that follows highlighting some of the
activities that could be identified in the case study.**

*Note that the intent of this case is to provide a basis for class
discussion and generate examples of mitigation strategies that could be
initiated at the community or neighborhood level. Mapping and modeling
are critical throughout the planning process for hazard mitigation. The
displays and graphics backed up by data from hazard models provide
critical information in this decision making process.*

######## I. Structural Measures

########  A. Alteration of Environment. The following require detailed examination of the relationship between the natural and built environment. Hazard models help clarify the key factors that increase community vulnerability. Before any of the following hazard mitigation strategies are implemented, a through analysis of the strategy must be implemented. This usually takes time and requires financial resources. 

*NOTE: Several figures in the case study provide an illustration of the
drainage system of neighborhood. Critical geographic features include
the presence of the levees around three sides of the community, the
presence of low areas, the main roads, rail lines and waterways and the
impacts of raised boulevards with trees in the "neutral ground" between
sides of the streets.*

1\. Sediment‑trapping or movement (jetties, beach nourishment or
dredging)

2\. Shoreline Protection Works including seawalls, revetments,
bulkheads, breakwaters, or construction or stabilization of sand dunes.

3\. Storm water Management

4\. Drainage System Maintenance

5\. Flood Control Works including dams and reservoirs, dikes and levees,
retaining ponds, flood channels, or floodwalls

6\. Slope Stabilization

7\. Brush Clearing, Controlled Burns, Fuel Breaks

8\. Wetland Preservation and Riparian Habitat Protection

*NOTE: The case study provides illustrations of many of the above
examples of altering the environment. Students should be able to
identify what had been done prior to Hurricane Katrina but they will
also be able to see what actions were not taken that could have
minimized the destructive impacts of this storm.*

> B. **Strengthening Buildings and Facilities.** The design and
> construction of buildings and other structures must be considered with
> landscape and hazard factors. Identifying opportunities in new
> construction or in the initial design of buildings and facilities
> should consider site criteria. Coastal construction within hazard
> zones for wind, storm surge, flooding or other hazards must be
> considered. The effective use of hazard models and mapping sciences
> are excellent tools to be included in the design process.
>
> 1\. **Flood proofing**

2\. **Elevating**

3\. Wind proofing

4\. Basement Protection

5\. Seismic Retrofitting and Design

6\. Burial of Utility Lines

> 7\. **Improvements to storm water, water treatment facilities, or pump
> stations**

8\. Upgrading Piers/Wharves

9\. Repair/Reconstruction of Fuel Storage Tanks

*Note that some of the structures in the 9^th^ Ward can be salvaged by
elevating the structure.*

> C. **Building Codes** (laws, ordinances, or governmental regulations
> setting forth standards and requirements for the construction,
> maintenance, operation, occupancy, use or appearance of buildings,
> premises, and dwelling units). Base elevations from FIRMs provide an
> illustration of how mapping and modeling tools can help guide
> elevation considerations. Examples of regulatory provisions that
> impact resistance to hazards include:
>
> 1\. **Freeboard**

2\. **Foundation Design**

3\. **Wind Standards**

4\. Cumulative Substantial Improvement

5\. Lower Substantial Improvement

6\. Critical Facilities

7\. Enclosure Limits

8\. Electrical and Mechanical Equipment

*NOTE: FEMA is providing new base elevations for this neighborhood. In
addition, a new building code was adopted by the state legislature in
December 2005. A major challenge to the City of New Orleans will be
effectively monitoring recovery efforts. With fewer residents in the
City, many public employees lost their jobs and fewer inspectors are
available to ensure that the codes are followed.*

######## II. Non-structural Elements

########  A. Development Management. The design of new construction or infilling must consider the landscape. Utilizing the hazard assessment process described in the previous section is critical in development management. A clear identification and characterization of a hazard and the vulnerability of the social, economic, and natural environments is a direct output of a hazard assessment. Modeling hazards and mapping community vulnerabilities is essential in the hazard assessment process and effective mitigation. Planning must take hazards into consideration and local jurisdictions can influence the development process through development regulations. 

**QUESTION: How do the displays of the depth of the water in the Lower
9^th^ Ward help to identify development options?**

> 1\. **Planning** (identify how a community should be developed and
> where development should not occur. They govern the rate, intensity,
> form, and quality of physical development. Planning also can specify
> actions a community will take to reduce its vulnerability to natural
> hazards or to minimize the impact of a hazard event.

**Question: How should the City of New Orleans involve residents from
this neighborhood in creating options for managing repairs, development
and land-use? Given that so many residents are not in New Orleans, how
could the City include the residents in the planning process?**

> 2\. **Development Regulations.** Mapping possible development options
> provides developers, residents, the public, and government officials
> with a clearer view of the implications of a development proposal.

a.  **Zoning** (designating areas by type of use, lot size, yard size).

b\. Growth Management Techniques (development caps, **growth phasing**,
or requirements for special populations (low income housing).

c\. Local Environmental Impact Ordinances (Environmental impacts)

d\. **Subdivision Regulations** (regulations governing proposed
infrastructure and the division of a lot, tract, or parcel into two or
more lots, tracts, parcels, or other divisions of land for sale or
development).

*Note that the case study provides some alternatives for growth phasing
and restrictions on future use of some of the lower areas of the
neighborhood. The students who generated these ideas walked the
neighborhoods but were not able to talk with displaced residents. What
is the value of resident input into this process? What might be some of
the contributions that residents could have made in this decision
process?*

> 3\. **Land and Property Acquisition.** A graphical model or display of
> a proposed use of land enables decision makers a clearer basis from
> which to judge the suggested use of a site.

a\. Acquisition of Undeveloped Land

b\. **Relocation of Existing Development**

c\. Purchase of Development Rights/Easements

d\. **Transfer of Development Rights**

e\. Advance Site Acquisition (**Land Banking**)

f\. Purchase Sellback/Leaseback

g\. **Purchase Option** (Right of First Refusal)

*The students propose the acquisition of a large portion of this
neighborhood. As a hazard mitigation strategy, what could the City do to
build support from the displaced residents for acquisition options? How
do you protect the interests of the displaced residents while the public
entity determines what land and property options should be considered?*

4\. **Land Use Policy.** The location, density, and use of resources can
be displayed in maps and graphics.

*Previous land use classifications may need to be changed given new base
elevation requirements. Ask the class to examine the previous land use
classifications in the neighborhood and why they might need to be
altered.*

> 5\. **Moratoria:** A moratorium is a short-term suspension of right to
> develop, usually done by not issuing permits. Moratoria can play an
> important role following a disaster by giving time to set priorities
> for response and potential mitigation efforts.

**QUESTION: Why is the use of the moratoria on rebuilding or development
so important following disasters? Why was this strategy critical in the
months following Hurricane Katrina?** *(Note that FEMA did not include
the risk from levee breaches in determining base flood elevations. New
elevation requirements would take many months to propose and then the
rule making process would add critical months to delays. A moratoria on
construction would provide guidance to ensure that resources for
restoration and rebuilding were used wisely.)*

> 6\. **Reconstruction Triage**: Reconstruction triage is the sorting of
> priorities for reconstruction. The use of a triage for decisions on
> reconstruction should be outlined in a post-disaster reconstruction
> plan, created prior to the disaster.

B. **Information Dissemination**. The distribution of information
concerning use of land resources and sites is critical. Model outputs
and maps are an essential element of helping the public and private
sectors as well as the public to understand the implications and long
term impacts of our public policies.

**QUESTION: How could the following information dissemination strategies
be used in this and other neighborhoods in New Orleans as part of the
recovery effort?**

> 1\. **Real Estate Disclosure Requirements**: Real estate disclosure
> requirements require notification that the property to be purchased is
> located in a hazard-prone area.
>
> 2\. **Community Awareness Programs:** Community awareness programs may
> be used in conjunction with and/or in place of real estate disclosure
> requirements to directly educate the potential homebuyer and the
> community of hazard risks.
>
> 3\. **Hazard Disclosure** (mapping hazards, notification, disaster
> warning, workshops, & education and training)

######## III. Private Sector Involvement. The banking, finance, insurance and building industry have major roles to play in the mitigation of natural and technological hazards. These private sector partners want assurances that investment risks are understood up front and can be limited. Mapping and modeling hazards and their potential impacts both play a critical role in this process. 

**QUESTION: What could the banking finance industry, insurance, and
building industry do as part of the hazard mitigation efforts in
restoring New Orleans? How do you get them included at the community and
neighborhood level?**

> A. Influence of the **financial industry** through loans by banks and
> other financial institutions for individual homes, apartments, or
> business developments
>
> B. **Insurance** coverage with requirements for homes, apartments, and
> other business and commercial developments.
>
> C. Working with the **building industry** to inform them of building
> practices and strategies to reduce vulnerability.

\[Source: Brower, D. (1997). Planning to Mitigate the Impacts of Natural
Hazards in the Caribbean: A Training Program. S. Stichter. Unpublished,
Department of City and Regional Planning, University of North Carolina
at Chapel Hill.\]

**Objective 14.4. Able to identify and explain the type and nature of
mapping and modeling information that contributes to the development and
implementation of hazard mitigation and land use strategies..**

I. Many local governments will have information available concerning
natural hazards that could impact their community as part of their
hazard mitigation planning efforts. Engineering, public works and
planning divisions could have critical information on the nature of
natural and technological hazards and their impacts.

> A. **Land-use Land Cover**: Many local city planning and assessor
> offices have detailed information on **property use and ownership**.
> This can be a major asset in examining potential hazard mitigation
> strategies. A more precise source of information about existing land
> use and development can be found in a parcel-level database from
> planning units and local property assessor offices.
>
> 1\. In most communities the county tax assessor will maintain a
> database of **land parcels**. This database contains important
> information about the type of structure, its size and use, and the
> assessed value of the land and improvements.
>
> 2\. The assessor will usually have a comprehensive list of land
> parcels that includes the owner's name and address and the **value of
> the land and improvements**.
>
> 3\. The Planning Department will generally have hazard maps, such as
> the FIRM. It will also have copies of the comprehensive plan and any
> background studies associated with it. It will also have zoning maps
> and ordinances that describe what types of development are allowed in
> various locations.
>
> 4\. The Public Works Department will have detailed information about
> key community assets such as bridges, drainage systems, and pumps.
>
> **B. Geography**: Contour information is available from the USGS in
> the form of digital elevation files (DEM) and available for all
> communities from the USGS. EPA also has information concerning
> waterways and detailed information is available from the EPA web site.
>
> 1\. **USGS QUAD maps (1:24,000 Scale**) provide excellent information
> on a community. Look at the detail of these maps and create additional
> community layers reflecting sensitive environmental areas,
> recreational areas, key landmarks, or subdivisions.
>
> 2\. If you have a hazard map in electronic form (e.g., a Q3 Flood
> Hazard Map) and parcel-level database, the amount of developed and
> undeveloped land and even the number of structures subject to the
> hazard can be determined by overlaying them in a GIS.
>
> C. Population Data: Census data relating to local population and
> housing is a widely available source of information about both
> **population and residential housing units**. The Census provides
> useful information on the location of development and the population
> exposed to the hazard.
>
> 1\. The Census summarizes many characteristics of **people and housing
> units**. This is available at various levels of geography including
> census tract and block group.
>
> 2\. Preparing **thematic maps** contrasting different local
> neighborhoods is an excellent means of understanding the
> characteristics of a community.

*Note: Census information for any local jurisdiction in then US can be
downloaded from a number of online sources (e.g., www.census.gov) for
little or no cost.*

> **D. Critical facilities** are those facilities that play an important
> role in supporting a communities' response and recovery (hospitals,
> police or fire stations, utilities, schools, nursing homes, community
> centers, recreation sites). Work with agency personnel to confirm the
> location of these critical sites and add additional data to the GIS
> layer to help in all emergency management activities. Ensure the
> database has sufficient information to provide a basis for hazard
> mitigation planning.

*Note the location of critical facilities in your community. How does
the location of a site impact the community's ability to respond and the
site's vulnerability to a hazard?*

> 1\. Particular attention should be paid to the exposure of **critical
> facilities** to the hazard.
>
> 2\. HAZUS-MH has excellent **local infrastructure** data sets
> including schools, emergency response agencies, hospitals,
> communications, road networks, and bridges.
>
> 3\. The Fire Department will have Tier2 Inventory Records and may have
> this information on **hazardous materials** in digital form that could
> be included in a GIS. The Local Emergency Planning Committee (LEPC)
> also may information on hazardous materials.

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