Local Mitigation on My Mind: What’s Going on Around the ... · Local Mitigation on My Mind: What’s Going on Around the Country that You Could Do Too? ... Katrina (Gavin Smith)

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A U.S. Department of Homeland Security Center of Excellence

Local Mitigation on My Mind: What’s Going on Around the Country that You Could Do Too?

39th Annual Association of State

Floodplain Managers Conference

Gavin Smith, Ph.D., AICP

Research Professor

University of North Carolina at Chapel Hill

Department of City & Regional Planning

Executive Director

Department of Homeland Security - Coastal

Hazards Center of Excellence

Director

Department of Homeland Security - Coastal

Resilience Center of Excellence

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Overview

• Linking Natural Hazards Risk

Management and Climate Change

Adaptation through Planning

– Climate Change Adaptation

Challenges and Opportunities

– Hazard Mitigation

– Disaster Recovery

• Local Implications/Relevance for

Floodplain Administrators

• National Hazard Mitigation Study

• Recommendations

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Organizing Principles

• Poor Coordination between

Climate Change Adaptation

and Natural Hazards Risk

Management Community

(Hazard Mitigation, Disaster

Recovery)

• Role of Planning and

Resilience

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Disaster Resilience

• “Designed in advance to anticipate, weather and recover from the

impacts of natural or terrorist hazards”

• “…built on principles derived from past experience with disasters”

• Comprised of “networked social communities and lifeline systems”

• “…adapting and learning from disasters”

• “…strong and flexible (rather than brittle and fragile)”

• “…new development is guided away from known high hazard areas and

their vulnerable existing development is relocated to safe areas”

• “…buildings are constructed or retrofitted to meet code standards

based on hazard threats”

• “…natural environmental protective systems are conserved to maintain

valuable hazard mitigation functions”

• “…governmental, non-governmental, and private sector organizations

are prepared with up-to-date information about hazard vulnerability

and disaster resources, as linked with effective communication

networks, and are experienced in working together (Godschalk 2003,

pp. 136-137).

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Section 2. The Nature of Disasters and the Role of Hazards Planning in Building Resilient Communities

• Climate Change Adaptation and Disaster Risk Reduction in Highland Peru (Anthony Oliver-

Smith)

– Adaptation as a long-standing cultural phenomenon closely associated with the persistence of societies

– Need for meaningful engagement/use of indigenous knowledge

• Castles on Sand: The Shifting Sources of Flood Risk and the Implications for Flood

Governance (Iain White)

– Challenges of urbanization in cities and regions in England

– Changing way of thinking-shift from post-event flood defenses to preemptive spatial/land use planning

• Planning for Resilient Coastal Communities: Emerging Practice and Future Directions (Tim

Beatley)

– Vision of resilient coastal communities, including underlying principles

– Highlights ways that communities have achieved this objective

• Resilience and Adaptation: The Emergence of Local Action in California (Bill Simbieda)

– Berkeley and San Francisco – physical and institutional resilience

– Emergence of leadership

• Rising to the Challenge: Planning for Adaptation in the Age of Climate Change (Phil Berke)

– Scenario-based planning – means to confront uncertainty in our understanding of climate change-

related impacts while providing necessary flexibility (robust and contingent strategies)

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Section 3. Case Studies: Lessons from Natural Hazards

• Applying Hurricane Recovery Lessons in the US to Climate Change Adaptation: Hurricanes

Fran and Floyd in North Carolina (Gavin Smith)

• The 2004 Manawatu floods, NZ: Integrating Flood Risk Reduction and Climate Change

Adaptation (Bruce Glavovic)

• Learning from Analyses of Policy Frames and Informal Institutions in the Fire Management

Sector of Victoria, Australia (Karen Bosomworth, John Handmer and Steven Dovers)

• Natural Coastal Hazards Planning: the 2004 Tsunami and Lessons Learned for Climate

Change Adaptation in Samoa (Namouta Poutasi, Michele Daly, Jude Kohlhase and Filomena

Nelson)

• Recovering from the 2004 Indian Ocean Tsunami: Lessons for Climate Change Response

(Ahana Lakshmi. R. Purvaja and R. Ramesch)

• Disaster Recovery in Coastal Mississippi: Lesson Drawing from Hurricanes Camille and

Katrina (Gavin Smith)

• Waves of Adversity, Layers of Resilience: Floods, Hurricanes, Oil Spills and Adapting to

Climate Change in the Mississippi Delta (Bruce Glavovic)

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Case Study Themes

• Importance of collaborative governance

• Influence of pre-event conditions (culture, wealth/poverty, policy

frameworks and institutions

• Value of establishing good vertical connectivity between

national policy and local plans

• Adopting varied and flexible risk management strategies

• Viewing disasters as focusing events (including adoption of new

policies and practices that reduce exposure to extreme events

and confront the drivers and root causes of vulnerability)

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Adaptation Challenges and Opportunities

• Slow-Onset and Episodic Events

– Differing timescales (episodic versus slow onset)

– Differing camps of researchers and practitioners

Knowledge base and terminology (physical

science/engineering, social sciences, planning); hazard

mitigation/adaptation

Policy frameworks (while different, both emphasize

sustainability and resilience)

• Linking Global Assessments and Local Impacts

(downscaling data)

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Broad Issues Underpinning Disaster Risk

• Demographic Change and Geographic

Shifts

– Aging population

– Growth in high hazard areas

• Reactive Nature of Hazards and

Disaster Policy

– Post-Disaster Policy (Rubin’s disaster

timeline)

– Unintended Consequences /

Incentivizing Development in High

Hazard Areas (e.g., NFIP, post-disaster

assistance)

• Settlement Patterns and Land Use

– Urbanization

– Smart Growth, New Urbanism-linkage to

natural hazards risk reduction and

climate change adaptation?

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Disaster Mitigation Act of 2000

• Response to Rising Disaster Losses

and Unexpended Hazard Mitigation

Grant Program Balances

• Effort to Develop More Proactive,

Pre-disaster Approach to Hazard

Mitigation

– Emphasis on Projects

• Federal Planning Requirements

– Hazard Mitigation Plans required

for State and local governments

to remain eligible for grant

funding

• Local plans must be approved by

State and FEMA, adopted by

participating jurisdictions

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Hazard Mitigation Study (Berke, Smith and Lyles)

• First National Evaluation of

State and Local Coastal

Hazard Mitigation Plans

Post-DMA of 2000

– Six-year, Department of

Homeland Security, Office

of University Program’s

Funded Study

– East Coast, Gulf Coast,

Great Lakes, West Coast

– Application of Plan Quality

Principles

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Plan Quality Principles / Examples

• Goals

– G1 resilience

– G2 equity

– G3 economic development

• Fact Base

– F1 projections

– F2 current land use

– F3 future land use

– F4 natural environment

• Policies

– P1 regulations

– P2 incentives

– P3 land acquisition

– P4 infrastructure

• Implementation– I1 timeline to act

– I2 prioritized actions

– I3 organizational responsibility

– I4 funding

• Monitoring– M1 measurable indicators

– M2 organizational responsibility

– M3 evaluation

• Inter-governmental Coordination– C1 information sharing

– C2 inter-governmental agreements

– C3 conflict management

• Engagement– E1 stakeholders

– E2 engagement techniques

– E3 stakeholder influence

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Hazard Mitigation Study (Berke, Smith and Lyles)

• Key Findings

– Poor Nexus Between Risk Assessment, Projects, and

Policies

– Land Use as a Risk Reduction Measure is Limited

Flood Mitigation Plans/CRS Study

– Very Limited Reference to Climate Change Adaptation

– Role of State as Capacity-Builder Highly Varied

Staffing

State Policies

Education and Outreach

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The Planner / Emergency Manager Divide

• Kartez and Faupel 1994; Smith 2011; Lyles 2012 (limited

interaction between emergency manager and planner)

• Hazard mitigation plans often overseen by local emergency

manager

– EM – led plans emphasize response/preparedness

– Planner – led plans placed greater emphasis on land use

• Complimentary skills (EM - hazard history, linkage with state

and federal emergency management agencies and resources,

Planner - land use, plan-making, dispute resolution)

• Planners may not realize that hazard mitigation plans are within

their purview

• Applicability to Local Floodplain Administrators?

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The Role of Planning in Climate Change Adaptation and Natural Hazards Risk Management

• Improved Use of Existing Planning

Tools and Processes

– Pre-Event Planning (hazard

mitigation and disaster

recovery)

– Land Use Planning Tools /

Spatial Orientation

– Scenario-Based Planning /

Temporal Dimension

Robust and Contingent

Strategies

• Planners as Coalition Builders and

Boundary Spanners

– Integrating Risk Reduction,

Resilience, and Adaptation

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Adaptation Imperatives and Lessons Learned from Natural Hazards Experience and Scholarship

• Governance Imperative

• Capability Imperative

• Planning Imperative

• Moral Imperative

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Recommendations

• Create Plans that Advance

Retrospective AND Prospective

Vision

– Require Land Use Element

– Address the Planner /

Emergency Manager Divide

• Require Clear Linkage between

Risk Assessment and Projects

AND Policies

• Explicitly Link Hazard Mitigation

Plans, Climate Change

Adaptation Plans, and

Comprehensive Plans

– Scenario Planning

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Recommendations

• Increase Emphasis on Federal, State, and Local Capacity

Building Efforts

– Use of indigenous knowledge

• Confront Governance Challenge – Building Powerful Coalitions

that Advance Hazards Risk Reduction and Climate Change

Adaptation

– Address Powerful Disincentives to Achieving Resilient

Communities (Post-disaster aid/local government paradox)

– Improve the Education of the Next Generation of Hazards Mitigation

Practitioners and Scholars (planners, policymakers, floodplain

managers, academics, design professionals, others)

Documents

Local Mitigation on My Mind: What’s Going on Around the ... · Local Mitigation on My Mind: What’s Going on Around the Country that You Could Do Too? ... Katrina (Gavin Smith)