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                                                                 Summary

                                                      A Coordination,
                                                         Education and
    A-be                                       Mitigation Model for
                                        Disaster Preparedness in
                                                         Coastal Areas
                                          Prepared by Coastal Area Planning and  dW
           551.2
           S86                            Development Commission September 1980
                                                                         410

           1980
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                                                SUMMARY OF

                              A COORDINATION, EDUCATION, AND MITIGATION MODEL

                                                    FOR

                                  DISASTER PREPAREDNESS IN COASTAL AREAS

                                                Prepared by
                             Coastal Area Planning and Development Commission
                                            Brunswick, Georgia

                                               September, 1980

                      "The contents of this report reflect the views of the contractor
                      who is responsible for the facts and the accuracy of the data
                      presented herein, and do not necessarily reflect the official
                      views or policies of the Federal Emergency Management Agency."

                                                           ftCV=ty Of CSC Library

                        Financial assistance for this publication was provided by the
                         Federal Emergency Management Agency (Contract #EMW-C-0365).

                            Art work for cover courtesy of Savannah News Press.

            C-1                                  S - DEPARTMENT OF COMMERCE NOAA
                                               COASTAL SERVICES CENTER
                                               2234 SOUTH HOBSON AVENUE
         2,                                    CHARLESTON, SC 2W5-2,113

                                                     TABLE OF CONTENTS

                      I.   INTRODUCTION    ............................      *.........
                                 Overview of the Project      ............................          I
                                 The Study Area     .....................................           2
                                 Elements of the Study     ..............................           2
                     II.   RESPONSIBILITY FOR DISASTER PREPAREDNESS          ................       5
                                 Overview of Responsibility       .........................         5
                                 Research and Findings     ..............................           5
                                       Planning   ..................................      * ...     5
                                       Response   ......................................            5
                                       Recovery   ...........  0000 ...0   .... 96-94S..060-9       6
                                 Conclusion   ..... 0 ...............................     0...      7
                    III.   BACKGROUND -- REGIONAL AGENCIES        .........................         8
                                 Overview of Substate/Regional Planning Agencies          ....      8
                                 History of Regional Planning Agencies .        .............       9
                                 Advantages of Involvement of Regional Agencies          .....      9
                     IV.   SUBSTATE/REGIONAL PLANNING AGENCIES AND DISASTER
                             PREPAREDNESS    ......................................                11
                                 Research and Findings     ...... 0....    0... $0 ....            11
                                 Conclusion    .........................................           13
                                 Recommendations     ..................    0......... 0.......     13
                      V.   ADVISORY COUNCIL AND SUBCOMMITTEES        ......................        14
                                 Research and Findings     ..............................          14
                                 Conclusion    ........................    0 ...............       16
                                 Recommendation     ........................    0............      16
                     VI.   ELEMENTS OF THE PROGRAM      ..... o ...........................        17
                                 Research and Findings     ..............................          17
                                       Planning ....   ..................................          17
                                       Training and Education 0    ....    *.* ..........          18
                                       Communication and Warning       .....................       18
                                       Inventory of Resources/Coordination/Emergency
                                         Services    ...................   * ...0............      18
                                       Evacuation/Transportation/Re-entry        ..... 0 ......    19
                                       Shelters                                                    19
                                       Clean-up and Recovery      ......                           20
                                       Education and Public Awareness ...**       ...........      20
                                             Printed Material     .........................        20
                                             Public Meetings    ..........................         21
                                             Special Activities    .........    0.............     21
                                             Audio-Visual Aides    ............   * ..........     21
                                             The News Media     ...............                    21
                                             Private Organizations and Volunteers        .....     22
                                       Mapping  ......................................        0    22
                                             Maps for Planning     ........................        22
                                             Maps for EOC    ..............          .........     23
                                             Maps for the Public      ......................       23
                                             A Uniform Mapping System      ........ 0 .... 06..    23
                                             Alternatives for Production        ..............     23

                                                                                                  Page

                                       Mitigation    ..........................    0 .........     25
                                             Zoning and Local Ordinances       ..............      25
                                             Subdivision Regulations      .............  0 ....    25
                                             Building Codes and Techniques       ............      26
                                             A Building Permit System      ............  # ....    26
                                             Open Space and Land Acquisition ....       ......     26
                                             Relocation of Existing Structures        ........     26
                                             Erosion and Sediment Control       .............      26
                                             Structural Measures     ......................        27
                                             Discouragement of Development       ...........  $    27
                                             Flood Warning and Evacuation Plans        .......     27
                                             Long Range Planning     ..........  o ...........     27
                                             Other Mitigative Measures       ..............        28
                                             Assistance or Training Needs and
                                               Providers   .............                           28
                                 Federal,    State and Local Involvement .... 29
                                 Mitigation and Substate/Regional Agencies          ..........     29
                                 Conclusions of the "Elements of the Program"
                                     Section ..........................................            29
                                 Recommendations     .......  0....... ....................        29
                  VII.      COORDINATION    ......... o .............  ....................        32
                                 Research and Findings .0     .......  ....................        32
                                 Conclusions     .....# ..................................         32
                                 Recommendations     .......  0.......*....................        33
                 VIII.      APPLICABILITY TO ALL DISASTERS       ..........................        34
                                 Research and Findings .0     ............................         34
                                 Plans   ..............................................            34
                                       Training and Education      ........................        34
                                       Communication/Warning ..so     .....................        34
                                       Inventory of Resources/Coordination/Emergency
                                          Services   ....................................          35
                                       Evacuation/Transportation      .....................        35
                                       Shelters    ......................................          35
                                       Clean-up and Recovery      .........................        35
                                 Education and Public Awareness       .........                    35
                                 Mapping   ......................................             0    35
                                 Mitigation   ............    0..........                          36
                                 Conclusion                                                        36
                    IX.     TRANSFERABILITY FOR USE AS A NATIONAL MODEL         .............      38
                                 Research and Findings *oooooo@o*oeo&&oosoooso*.o          ....    38
                                       National Interests Groups      ...................          38
                                       State and Federal Agencies ..      ................         39
                                 Conclusion ..   ..........   *...............  0... see ......    41
                                 Recommendation    ....................    0 ...                   41
                     X.     STAFF/FINANCIAL RESOURCES NECESSARY TO UNDERTAKE
                              THE PROGRAM    ..................  o ........................        42
                                 Budget for Implementation oos9osooooo*oooeoso@oosoo6              42
                                 Staff Resources Needed       .............................        42
                                 Possible Funding Sources       ...........................        43

                                                 I. INTRODUCTION

                 OVERVIEW OF THE PROJECT

                 The local elected officials of coastal Georgia have recognized the need for
                 a coordinated disaster preparedness program. As a result, a study was
                 undertaken by the Coastal Area Planning and Development Commission (APDC) to
                 determine the most effective manner of coordinating the array of storm
                 related plans that currently exist in the area. Since most disasters,
                 natural or man-made, are a regional problem, it was determined that
                 preparedness measures should be a regional effort. The need for@a
                 coordinative mechanism at the regional level became apparent.

                 In December, 1979, the Coastal APDC met with Federal Emergency Management
                 Agency (FEMA) officials in Washington to discuss the viability of implementing
                 a regionwide disaster preparedness program along the coast of Georgia. The
                 overall goal of the project was to strengthen local governments' capacity in
                 civil preparedness matters. This was proposed to be accomplished through the
                 direct provision of technical assistance to local governments by
                 substate/regional planning agencies. The Coastal APDC's formal proposal
                 called for a four element program -- planning, mapping, education, and
                 mitigation and was entitled "Coordination, Education and Mitigation Model
                 for Coastal Georgia Storm Preparedness." At the time the proposal was
                 submitted to FEMA, it was stressed by the Coastal APDC that the project
                 was unique in approach and possessed the potential for use by FEMA as a
                 nationwide model for disaster preparedness, response, and recovery.

                 Recognizing that the Coastal APDC proposal could have merit as a prototype
                 for disaster activities, FEMA contracted with the agency to conduct a
                 study designed to:

                      1.   Research existing storm preparedness efforts undertaken by
                           state/substate regional agencies throughout the country and
                           identify ways in which a comprehensive program could be most
                           effectively implemented at the substate/regional level.

                      2.   Outline the nature of an advisory council for a hazard mitigation
                           program.

                      3.   Expand the role for mitigation activities to include multi-hazards.

                      4.   Research the means of securing maximum involvement of various
                           state, federal, and local agencies in a demonstrative activity.

                      5.   Identify the implications of such a project to other coastal
                           areas and explore the role of national interest groups or other
                           institutional entities in maximizing the utility of conclusions and
                           processes developed in other geographic settings.

               The primary issues to be addressed in the Coastal APDC study were whether, in
               fact, the original proposal was unique; whether regional agencies had participated
               in the past in such comprehensive programs and, if they had not, whether it
               was feasible for FEMA and state emergency service agencies to use these agencies in
               building the capacity for disaster preparedness, response, and recovery. The
               completion of the Coastal APDC study and subsequently published report
               entitled "A Coordination, Education and Mitigation Model for Disaster
               Preparedness in Coastal Areas" indicated that a comprehensive regional
               approach to disaster preparedness planning, through direct technical assistance
               provided by substate/regional planning agencies, was unique and viable.
               The document presented here is a summary of the report and study completed
               by the Coastal APDC.

               THE STUDY AREA

               The coastal area of Georgia, (see Figure 1) covering an eight-county area
               and served regionally by the Coastal APDC, was used as the primary study area
               for the research conducted. It is an area covering 3,785 square miles with a
               population of approximately 350,000 in 1980. The contrast between slow, rural
               and rapid, urban growth provides a representative area in which to conduct a
               study of disaster preparedness.

               The Coastal APDC is one of eighteen substate/regional planning agencies in
               the state and one of approximately 671 in the nation. Through the
               implementation of its programs, the Coastal APDC is continually involved
               in planning activities such as land use, transportation, coastal resources
               management, military growth related impacts, economic development, and
               provisions for the elderly. Additionally, among its designations, the
               Coastal APDC is the Area Agency on Aging, A-95 Review Clearinghouse,
               Economic Development District, promotion center for the Coastal Georgia
               Tourism Program, and the agency responsible for the Department of Housing
               and Urban Development (HUD) 701 regional planning programs.

               In addition to the use of the Coastal APDC region as the primary study area,
               research was conducted throughout the Atlantic, Pacific, Gulf, and Great
               Lakes states. Substate/regional planning agencies, state emergency
               service agencies, and local officials were surveyed regarding their roles
               in disaster preparedness programming.

               ELEMENTS OF THE STUDY

               Of primary importance to local officials is the development of effective
               disaster preparedness plans for their jurisdictions. However, in
               addition to disaster planning concerns, local elected and appointed
               officials have become more cognizant of the need to formulate prudent
               development guidelines which mitigate the effects of natural disasters,
               such as hurricanes, on property. Educational and public hazard awareness
               programs were also found to be an important mitigative measure in reducing
               the loss of lives due to a natural disaster. Finally, map resources for
               disaster response planning and public information were very limited in
               Georgia's coastal area.

                                                      2

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                                                                                                                                              \E    F  I N G H A
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                                                                                        date:                                                                                                               South Carolina
                                                                                     1980
                                                                                 prepared by:
                                                  Coastal Area Planning and Development Commission
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                The need for coordinated disaster preparedness efforts is not confined
                to Georgia and, as a result, FEMA contracted with the Coastal APDC to
                develop a model program that could be used in any area of the United States.
                The "Coordination, Education and Mitigation Model for Disaster
                Preparedness in Coastal Areas" is applicable not only to coastal disasters
                but disasters that would occur any place in the country.

                To achieve this end, research was undertaken to determine where the
                responsibility rested for disaster planning, response, and recovery.
                Research was also conducted to identify the needs of local and state
                government in disaster preparedness and the types of assistance that
                could be provided to build the capabilities of both. To guide the
                research project, a task force was formed consisting of federal, state,
                and local representation. This was done to insure that all data sources
                were utilized. The research document, "A Coordination, Education, and
                Mitigation Model for Disaster Preparedness in Coastal Areas" is intended
                to be a "cookbook" to guide the development of a comprehensive disaster
                preparedness program including planning, education and public awareness,
                mapping, and mitigation elements, in any area of the United States.

                In summary, there is a need for some coordinative mechanism as well as
                � means of providing technical assistance to local governments in developing
                � comprehensive disaster preparedness program. Substate/regional planning
                agencies can be a technical arm, on the local level, for state emergency
                service agencies and provide the much needed disaster preparedness
                planning assistance.

                               II. RESPONSIBILITY FOR DISASTER PREPAREDNESS

                 OVERVIEW OF   RESPONSIBILITY

                 The Federal   Emergency Management Agency, as the primary national agency
                 for disaster preparedness, response, and recovery, uses a regional approach
                 in providing services. Its central office works through regional offices
                 and they, in turn, work with states in implementing their myriad of programs.
                 State agencies responsible for emergency services, such as civil defense
                 agencies, typically divide their state into large substate areas. These
                 areas, often covering 20 counties or more, are usually served by one area
                 coordinator who, because of limited staff and time, is not able to provide
                   in-depth" comprehensive disaster preparedness planning assistance to all of
                 the individual local governments in the area.

                 Research and Findings

                 Twenty-five coastal and Great Lakes states were surveyed to determine where
                 the legal responsibility rests for disaster preparedness planning, response
                 (evacuation order), and recovery. The primary state laws dealing with
                 responsibility were also compiled as reference material.

                 Results are shown by the following percentages of the states surveyed:

                                                      Planning

                       1.    The primary responsibility rests solely with the local
                             chief elected official -- 60 percent.

                       2.    The primary responsibility rests solely with the state
                             emergency services agency         36 percent.

                       3.    Total local responsibility         sole or shared -- 64 percent.

                                   Response (authority to order evacuation)

                       1.    Governor    ... -  ... o... oo..o .....o ...o ... oo.*.o..oo..o  16 percent
                       2.    Local chief elected official ..       ...-  ... o........  ooo.. 20 percent
                       3.    Shared local/Governor           ...  oo_  ....... oo ...  o...,  36 percent
                       4.    Shared local chief elected official/other local
                               officials   ...... oo ... o.oo ...o..... o... o........        20 percent
                       5.    No authority or unclear ..     ....... *o  ...o......o.....        8percent
                       6.    Total local responsibility         sole or shared    .........   76 percent

                                                  Recovery

                      1.   Primary state emergency management agency     ...........  28 percent
                      2.   Local chief elected official    ........................   68 percent
                      3.   Shared state/local    ..................................    4 percent
                      4.   Total local responsibility -- sole or shared      ........ 72 percent

                 Regardless of where primary responsibility lies for developing disaster
                 preparedness, response, and recovery plans, actual implementation will take
                 place at the local level. Therefore, the success of such planning efforts
                 depends on the activities of local officials and their ability to perform
                 effectively.

                 In all states surveyed, organization of local civil defense units within
                 political subdivisions of states is either required by law or is strongly
                 encouraged, Even in states where local civil defense organizations are
                 required by law, it has proved to be virtually impossible to enforce a
                 particular level of activity in each organization. Whether mandated or
                 encouraged, the effectiveness of local civil defense organizations
                 depends on personnel, local support from elected officials as well as
                 the community, and financial support and assistance from the state
                 emergency service agency.

                 Many urban areas may possess in-house planning capabilities (i.e. a
                 professional staff for disaster planning) and, therefore, possess the
                 greatest level of civil defense involvement and activity. In rural areas
                 of the country, some civil defense officials are fulltime employees of
                 local government, some are volunteers, while some serve in dual capacities.
                 In rural areas, for example, a county clerk may serve as local civil defense
                 director. In the cases of such part time directors, heavy reliance is placed
                 on state civil defense area coordinators for providing technical assistance.

                 Some areas have improved preparedness measures through experience. such as
                 the Gulf Coast area which has experienced a high frequency of coastal
                 storms. Areas that have not experienced frequent damage from storms
                 are not as well prepared. Again, the civil defense area coordinator is
                 called upon to fill the gap created by the local governments' lack of
                 experience in actual disaster situations.

                 To determine possible tools for expanding local and state government
                 capability, seventeen coastal states were surveyed. Of the states surveyed,
                 40 percent currently use substate/regional agencies to enhance their
                 capabilities in some way, The functions they serve have been in data
                 collection, evacuation planning, local review of state assisted disaster
                 response plans, provision of map resources, and assistance with the National
                 Flood Insurance Program (NFIP). Sixty-eight percent of the state emergency
                 service agencies indicated that additional involvement of regional agencies
                 would be a valuable supplement to state disaster preparedness agency
                 capabilities. Specific examples were in providing technical assistance in
                 preparing plans and fu rther developing educational and awareness programs.

                                                          6

                Conclusion

                The demand placed on civil defense area coordinators is great. In many
                cases, it is physically impossible for them to provide continuous "in-depth"
                technical assistance to all local governments who require it. Twenty counties or
                more may be included in such a civil defense substate area. If, in that area,
                all political subdivisions are required by law to develop and maintain
                disaster response plans and do not possess the in-house capabilities to do
                so, many local governments are left without the necessary guidance. States
                frequently provide local governments with a document after which to model
                their own plans. This may be the overall state disaster response plan
                or a model county plan and can provide a sound base for planning. However,
                because it does not reflect the specific needs of each locality, local
                governments must tailor the model to fit their needs. In order to be
                effective, such models must either be very basic in nature with the process
                for development clearly defined or be accompanied by staff to assist in
                adaptation to local needs. Many area coordinators simply do not have the
                staff to individually assist each and every local government in the
                initial development of a program and the necessary annual review and
                revision process. A mechanism for building the capability of state and
                local government is needed. Substate/regional planning agencies can provide
                such a mechanism. Typically they serve much smaller conglomerates of local
                governments than state civil defense substate area coordinators. They
                provide technical assistance in a variety of areas and could assist state
                emergency management agencies in providing technical assistance in
                disaster preparedness planning to local governments.

                                                       7

                                 III. BACKGROUND -- REGIONAL AGENCIES

                OVERVIEW OF SUBSTATE/REGIONAL PLANNING AGENCIES

                The phrase "substate/regional planning agency" refers to a multi-county/multi-
                functional public organization involved in a variety of programs and services
                that assist local government, Regional agencies are, for the  most part,
                voluntary associations of local governments created for the purpose of providing
                information, assistance in obtaining federal funds, and a forum for addressing
                common problems. Examples of areas of activity of such agencies include: compre-
                hensive land use planning, housing, A-95 review, tourism promotion, transportation,
                environmental quality, human resources, grantsmanship, economic development,
                community development, public safety, mapping, and demographic data
                collection. In general, characteristics of such organizations are:

                          They are organized on a multi-jurisdictional basis (usually
                          multi-county).

                          They seek to achieve governmen tal coordination and cooperation
                          across legal jurisdictional boundaries to handle mutual needs
                          and problems.

                          They are multi-functional in scope and work with a variety of
                          programs and problems.

                      -   They are advisory and lack operational authority. They do not
                          have the governmental powers of taxation regulations (with
                          few exceptions).

                      -   They are legal entities which exist through the agreement of
                          their member governments."

                      1Robert J. Marshak, "Areavide Disaster Response: Civil Preparedness
                and Regional Councils," Defense Civil Preparedness Agency, Human Sciences
                Research, contract DAHC 20-73-C-1025, Work Unit 4412E, February, 1974.

                HISTORY OF REGIONAL PLANNING AGENCIES

                Regional agencies exist as creations of the particular state(s) in which
                they are located and provide a means of dealing with multi-jurisdictional
                problems. Records indicate that in 1929 the first regional effort in the
                nation was undertaken in the state of New York, where a regional land
                use plan was developed. Today, as in the 1920's, areas of activity cross
                jurisdictional boundaries in ever increasing fields.

                Many counties and communities, especially in rural areas, do not have the
                technical or financial resources to comprehensively deal with the many problems
                and issues they face. In such cases, regional planning agencies serve as "tools" of
                those local governments. A total of 671 substate/regional planning agencies exist
                in the United States, as of 1980, and reach 99 percent of all counties in the
                nation. Partially as a result of expansion of federal programs and increases in
                requirements of these programs, substate/regional agencies are becoming even more
                effective and multi-functional in their service to local governments. A
                recent survey of the National Association of Regional Councils (NARC)
                indicated  that regional agencies are involved in at least ten federal programs:

                      1.   The HUD Comprehensive Planning Assistance Program (701).
                      2.   Areawide Water Quality Management (208).
                      3.   Air Quality Management (Section 175).
                      4.   Solid Waste Management (Environmental Protection Agency).
                      5.   Areavide Agencies on Aging (AAA).
                      6.   Health Systems Agencies (HSA).
                      7.   Criminal Justice Planning (Law Enforcement Assistance Administration).
                      8.   Economic Development (Economic Development Administration).
                      9.   Metropolitan and Rural Transportation (Department of Transportation).
                      10.  Title V Federal Regional Agencies (i.e. Coastal Plains Regional
                             Commission).

                As the above list indicates, the gamut of activities and programs which
                regional agencies participate in is broad, An expansion to include
                disaster preparedness, response, and recovery planning would seem a natural
                progression.

                ADVANTAGES OF INVOLVEMENT OF REGIONAL AGENCIES

                Regional agencies possess many advantages which make them a useful tool
                for implementation of local, state, and federal programs such as disaster
                preparedness, response, and recovery. On a broad national scale, among
                these advantages are:

                      1.   Substate/regional agencies are not a threat to "home rule"
                           as their boards of directors are local elected and appointed
                           officials.

                      2.   Substate/regional agencies are not an extension of any state
                           or federal agency.

                      3.   Substate/regional agencies exist purely as an advisory body and
                           technical assistant to local governments.

                                                        9

                      4.   Substate/regional agencies serve as a liaison between
                           federal/state and local governments.

                Creative  use of substate regional planning agencies by federal, state
                and local governments can provide significant assistance to local
                governments in meeting their own responsibilities.

                                                      10

                     IV. SUBSTATE/REGIONAL PLANNING AGENCIES AND DISASTER PREPAREDNESS

                   A comprehensive regional approach to disaster preparedness, response, and
                   recovery programming has never been undertaken in the United States. Such
                   a regional approach, including the elements of planning, mapping, education
                   and public awareness, and mitigation, has been determined to have validity
                   and potential for effectiveness in delivering technical assistance to local
                   units of government.

                   Research and Findings

                   The results of a telephone survey conducted in the Atlantic, Pacific, and
                   Gulf states indicated that 27 percent of the coastal substate/regional
                   planning agencies in those states were found to have done some type of work
                   in disaster preparedness (see Table 1). Inquiries concerned the provision of
                   direct technical assistance to local governments in the areas of planning,
                   education/public awareness, mapping and mitigation. Included in the 27 percent
                   are active and inactive programs. Many of the respondents
                   indicated that in the past they had produced documents that were never
                   implemented or had undertaken activities that were discontinued for lack
                   of financial or staff support to make them useful. Many were not
                   comprehensive efforts and included only a few of the necessary elements
                   vital to a workable disaster response plan.

                   In terms of educational efforts, results of the regional agency survey indicated
                   that such efforts were not comprehensive and often utilized no physical tools.
                   Mapping activity appeared in only three regions and was not geared to
                   providing technical assistance in filling specific needs of local governments.

                   Mitigation activities undertaken by regional agencies basically included
                   assistance, upon request, to local governments in administering the NFIP,
                   writing land use ordinances and subdivision regulations, participating in
                   land use planning, participating in the A-95 review process, and in two
                   states, Florida and Virginia, participating in a state mandated review of
                   development affecting more than one local government. The more active
                   mitigation efforts involved specific hazard mitigation planning in only
                   eleven regions.

                   In an effort to insure that a complete analysis of regional agency
                   involvement in disaster preparedness efforts was undertaken, a survey
                   was conducted via national interest groups. Regional agencies involved in
                   such efforts in landlocked regions responded, with results indicating
                   minimal, isolated efforts and, certainly, no comprehensive approach.

                                               TABLE 1

                        Coastal Regional Agencies (by State) Providing Direct
                             Technical Assistance to Local Governments*

               STATE               PLANNING     EDUCATION     MAPPING      MITIGATION

               Alabama

               California               X                                      X

               Delaware

               Florida                  X                                      X

               Georgia                                                         X

               Louisiana

               Maine                    X                                      X

               Massachusetts            X                                      X

               Mississippi

               New Jersey

               New York

               North Carolina

               Oregon                                                          X

               South Carolina

               Texas                    X            X

               Virginia                                                        X

               Washington

                 "X" indicates one or more coastal regional agencies in the state involved in
                 providing technical assistance in the particular element of the program.

                                                      12

                Finally, state emergency service agencies were contact by telephone
                to determine their involvement in providing assistance to local government
                as well as their knowledge of other groups/agencies who were involved in
                disaster preparedness programs. From the completed research, only six
                groups/agencies were identified as having programs of special significance.
                None were comprehensive efforts in providing technical assistance in all
                basic areas of planning, education/public awareness, mapping, and
                mitigation.

                Conclusion

                It is clearly evident from a review of the results obtained that in no
                coastal state has a comprehensive approach to disaster planning been
                undertaken on a regional basis. From a review of all the data gathered, it was
                learned that in only two of the agencies surveyed were any activities
                approaching a comprehensive nature being undertaken. However, the work by
                these agencies, the Tampa Bay Regional Planning Council (Florida) and the
                Southwest Florida Regional Planning Council, does not focus on providing
                direct technical assistance to local units of government in the region.
                Local governmental entities must be provided more comprehensive and intensive
                technical assistance in all elements of a preparedness program if they are,
                indeed, to be prepared.

                Since the nature of substate/regional planning agencies is advisory, such
                agencies act at the request of member local governments in providing
                assistance. Many of those requests are motivated by a requirement made of
                local governments to perform a certain task in order to comply with federal,
                state, or local needs.

                In general, these agencies are well equipped to maintain close contact in
                the geographical area and to assist the civil defense area coordinator in
                providing technical assistance to local governments in disaster preparedness,
                response, and recovery. Working with state emergency service agencies,
                they can provide the direct assistance necessary to insure consistency with
                state plans, coordination with supporting groups and agencies, and a system
                for regular review and revision of all phases of the disaster planning
                program,

                Recommendation:

                0    Substate/regional planning agencies should be utilized by federal and state
                     emergency preparedness agencies to build the capabilities of federal,
                     state, and local government in developing regional disaster preparedness
                     programs. Local technical assistance should include development and
                     maintenance of disaster response plans, hazard awareness programs, map
                     resources, and hazard mitigation activities.

                                                       13

                               V. ADVISORY COUNCIL AND SUBCOMMITTEES

               Direction and control of a disaster preparedness and response program is
               the guidance necessary to develop the program in a coordinated and organized
               fashion. To be effective in the implementation stage, the responsibility
               for direction and control during the planning process must be placed with
               those who will be charged with carrying out the plan.

               To insure coordination in the development of the program, as well as
               implementation of each function, it has been found that advisory
               groups representing all involved agencies and groups have served in
               a valuable capacity. Such groups are found at the federal, state, and local
               levels. Most substate/regional planning agencies use advisory councils to guide
               the development of their various programs. These groups, made up of
               local officials, business and industry, institutions, special interest
               groups, and the citizenry, effectively represent the views of the region.
               If a comprehensive disaster preparedness program is to be undertaken at
               the regional level, it follows that a regional advisory council and
               subcommittees should be appointed to direct the program.

               Research and Findings

               Advisory groups transcend levels and departments of government to
               coordinate activity and to serve the citizens in the most effective manner
               possible. A study completed in 1979 by the Advisory Committee on
               Intergovernmental Relations in Washington, D. C. indicated that, of the
               50 states surveyed, in 23, or 46 percent, an Intergovernmental Advisory
               Committee assisted the governor in guiding the development of state
               programs. From the 25 coastal and Great Lakes states surveyed by
               the Coastal APDC, 14 or 56 percent, utilized such advisory committees.
               The advisory groups represent state agencies involved in disaster
               preparedness planning at the state level. Examples are also found at
               the local level. In Mobile County, Alabama, a civil defense authority
               was created as the governing board of the Mobile County Civil Defense
               Organization. It represents membership from political entities in the
               county as well as the county itself. In Chatham County, Georgia, a
               Civil Defense Council serves in an advisory capacity to the Chatham County
               City of Savannah Civil Defense Department*

               In order to provide a concrete example of how the regional advisory council
               and subcommittees should be organized, a careful analysis was made of
               the state of Georgia's disaster response plan and which agencies/groups
               had primary or secondary responsibility in functional areas of disaster
               response. These roles are surmorized in Table 2 (P denotes primary
               function and S denotes a support function.)

               Since Georgia's plan is similar to that of other states, it should be
               possible for the results and methods presented here to be transferred for
               use by others. To define functional areas of response at the local level, the
               more specific response-activities identified from the Georgia state plan were
               consolidated under general headings as follows:

                                                   14

                     1.    Training and Education.
                     2.    Communication/Warning.
                     3.    Resources and Coordination.
                     4.    Evacuation and Transportation.
                     5.    Shelters.
                     6.    Clean-up and Recovery.

                Additional means of determining these functional areas is described
                in Section VI, "Elements of the Program" under Planning.

                In terms of response roles at the regional and local levels, primary and
                secondary response agencies/groups and service providers should be identified
                by interviews with those chief elected officials and others with authority
                for preparedness, response, and recovery.

                Conclusion

                The advisory council and subcommittees should represent interests throughout
                the region. It is important that their members be persons who are committed
                to the program and would attend regular meetings to help formulate programs
                and maintain them. A letter of committment from each agency or group
                represented can solidify the relationship with the advisory council. Regular
                meetings of these groups should be used initially to build a framework for
                disaster preparedness planning. That framework can be utilized in the
                development of individual county (or municipal) response plans so that all
                local plans in the region are coordinated and address needs common to each
                county or community.

                Substate/regional planning agencies can serve as a facilitator to bring
                together those groups involved in disaster preparedness. The primary
                responsibility of such an agency would be to serve as a coordinative and
                technical assistance mechanism.

                Recommendation:

                0    An advisory council should be formed representing the region served by the
                     disaster preparedness, response, and recovery program. Membership should
                     include groups/agencies expected to play primary roles in implementation.
                     Advisory council subcommittees should be formed representing the region
                     served by the disaster preparedness, response, and recovery program.
                     Membership should include groups/agencies expected to play secondary
                     roles in specific functional areas of implementation. Subcommittees   should
                     include, but not be limited to the following:

                           1.   Training and Education.
                           2.   Communication/Warning.
                           3.   Resources and Coordination.
                           4.   Evacuation and Transportation.
                           5.   Shelters.
                           6.   Clean-up and Recovery.

                                                      16

                                      VI. ELEMENTS OF THE PROGRAM

                  A disaster preparedness program is more than a document containing
                  response procedures. It is a continuous, coordinated effort to prepare
                  the general public for emergency situations. It is also an effort to
                  prepare responsible agencies and groups who direct, control, and support
                  operations in emergency situations. It is the difference between having
                  a written plan and active planning.

                  Elements of a comprehensive disaster preparedness program can be summarized
                  in four basic areas: planning, mapping, education and public awareness,
                  and mitigation.

                  Research and Findings

                  Specific elements of a comprehensive preparedness program were determined
                  through the analysis of plans and programs in other areas of the country
                  as well as in Georgia's coastal area. Personal interviews were conducted
                  with local agency heads and officials and the Georgia Civil Defense. From
                  this information, functional areas of disaster preparedness, response,
                  and recovery responsibility were identified.

                  In determining the tools most effective for an education/public awareness
                  program, media uses were identified through a survey of the media itself.

                  Mapped information needs were determined through telephone interviews with
                  state emergency service agencies, local civil defense directors, and other
                  users. The National Oceanic and Atmospheric Administration (NOAA), producers of
                  the Storm Evacuation Map (STEM) series were also contacted.

                  Mitigation alternatives were identified from data collected through telephone
                  surveys of state emergency preparedness agencies, regional planning agencies,
                  local building inspectors, and from FEMA, Region IV, Insurance and Mitigation
                  Division. Federal and state programs offering local incentives for mitigation
                  activities were also researched and analyzed. The needs of local government
                  were assessed in terms of the responsibility placed on local government and
                  the tools they have for implementation.

                  Planning

                  The following parts, or functional areas of a disaster response plan, were
                  identified by reviewing printed documents from various coastal areas,
                  examining the results of the survey of other geographic areas, and
                  contacting program users in the state of Georgia:

                       1.   Training and Education.
                       2.   Communication/warning.
                       3.   Inventory of resources/coordination/emergency services.

                                                     17

                      4.   Evacuation/transportation/re-entry.
                      5.   Shelters.
                      6. Clean-up and recovery.

                 It is imperative that planning activities not be undertaken in an isolated
                 manner. As every component of the plan relates to the others, each city
                 or county relates to those surrounding it. Plans must include concrete
                 provisions, for example, for dealing with traffic related problems in
                 host counties during evacuation periods, opening and operating Shelters
                 and reception centers and establishing communication networks during
                 power outages.

                 The subsequent narrative summarizes each of the functional areas.

                                         Training and Education

                 The following is a list of components that should be included in a training
                 program for local officials:

                      1.   Identification of primary activity for each group.
                      2.   "Classroom" instruction on how to carry out responsibility.
                      3.   Simulation exercises to test responses and adequacy
                             of the local plan.
                      4.   Identification of resource equipment.
                      5.   Identification of resource personnel and their duties.
                      6.   Regular review of the written plan.

                                        Communication and Warning

                 The basic components for a disaster warning system are published by the
                 Defense Civil Preparedness Agency (DCPA), now part of FEMA. Local disaster
                 warning plans should be prepared to:

                      1.   Identify the agency/individual responsible for warning.
                      2.   Describe types of warnings that may be received and require
                             dissemination.
                      3.   Explain method of dissemination.
                      4.   Provide for activation of the warning system*
                      5.   List actions to be taken.
                      6.   Include key agencies and personnel.
                      7.   Allow warning point authority to terminate warning.
                      8.   Provide for periodic testing of the system.
                      9.   Review/revise at least every two years.

                         Inventory of Resources/Coordination/Emergency Services

                 Hardware and software resources are the tools of disaster response
                 efforts. A "parts" inventory should represent each community's
                 resources and the region as a whole. Many local governments have such
                 listings in various forms. Some are written and some are not. In
                 many cases, written listings are not detailed or maintained. As an
                 annex to local plans, such listings are generally not distributed to
                 all departments of local government where an effective review process
                 could occur. Services as well as equipment must be identified, such as:

                                                    18

                 Service                                 Equipment and Supplies

                  1.  Medical services                    1.  Food
                  2.  Engineering services                2.  Clothing
                  3.  Search and rescue                   3.  Medical supplies
                  4.  Transportation                      4.  Vehicles
                  5.  Debris removal                      5.  Heavy equipment
                  6.  Water testing                       6.  Power generators
                  7.  Fire protection                     7.  Ice
                  8.  Temporary shelter                   8.  Household utensils
                  9.  Temporary housing                   9.  Furniture for temporary housing
                 10.  Unemployment counseling            10.  Debris dumping sites
                 11.  Financial assistance counseling    11.  Chain saws
                 12.  Veterinary services                12.  Water pumps or storage equipment
                 13.  Police protection                  13.  Water

                 These listings should be delineated by county and municipality. They
                 should be specific and cross referenced in an index as to their location
                 and type of function. Whenever possible, a simple map should show
                 location of service. The listing should also include contact people and
                 emergency telephone numbers or a means of contact.

                                   Evacuation/Transportation/Re-entry

                 It has been shown that sole or shared legal responsibility for
                 evacuating an endangered area rests with local chief elected officials
                 in 76 percent of the states surveyed. That figure, in itself, illustrates
                 the need for well organized evacuation plans and sound methods for
                 determining required evacuation time,

                 Basic requirements of an evacuation plan should include:

                      1.   Number of people to be evacuated.
                      2.   Number of vehicles to be used.
                      3.   Identification of evacuation routes.
                      4.   Identification of evacuation zones for storm related and other
                             disasters, where a segment of a population is in immediate danger
                             and others are not.
                      5.   Identification of special population requiring assistance.
                      6.   Pre-determination of time required for evacuation with regard
                             to type, severity of disaster, and expected impact.
                      7.   Procedure for affecting re-entry in the post-disaster state.

                                                Shelters

                 The identification and operation of shelters is a regional effort. In the
                 event of a disaster, neighboring communities must be prepared to receive
                 the endangered population. Specific requirements should serve as the
                 groundwork for a coordinated shelter plan:

                      1.   Identification of facilities.
                      2.   Maximum capacity.

                                                     19

                    3.   Number of evacuees to be accommodated.
                    4.   Authority to open shelters.
                    5.   Operations responsibility -- equipment, supplies, minimum
                           personnel, registration.
                    6.   Communication link with the Emergency Operations Center (EOC).
                                              Clean-up and Recovery
               Restoring a community to original or improved condition after a major
               disaster can require virtually every piece of equipment and all available
               manpower not only in the immediate area but from miles around. Such
               a situation implies regionalism more strongly than ever.
               Basic components in a clean-up and recovery program include:
                    1.   Damage assessment.
                    2.   Debris removal.
                    3.   Road repair.
                    4.   Utilities restoration.
                    5.   Structural rebuilding.
                    6.   Public property assistance.
                    7.   Health and social services.
                    8.   Temporary housing.
                    9.   Mortuary and identification services.
                    10.  Police protection.
                    11.  Coordination of private organizations and volunteers.
                    12.  Other state/federal assistance.

               Each of the components listed above will be the subject of an annex to the
               clean-up and recovery plan. Components 1-5 are aimed at the physical activities
               in repairing a damaged community. Since local resources must be the first line
               of defense, they must be coordinated in advance of the disaster occurance.
               Public property assistance refers to the process of obtaining assistance for
               rebuilding activities beyond the capability of local efforts. Components 7-11
               include local activity as well as state and federal assistance. Other
               state/federal assistance could include such things as unemployment or
               reemployment counseling and insurance administration. With the multitude of
               assistance programs available, local officials must be cognizant of their own
               roles and how to obtain additional assistance. Each annex will spell out personnel
               identification, equipment identification, cooperative agencies and what they
               can provide, the mission to be completed, who is in direction and control,
               a concept of operations, and administrative procedures.

                                   Education and Public Awareness
               The basic tools for an educational/public awareness program are:
                    1.   Printed material.              5.   News media.
                    2.   Public meetings.               6.   Private organizations and
                    3.   Special activities.                   volunteers.
                    4.   Audio visual aides.            7.   Church/civic groups and volunteers.
               Printed Material should be brief, easy  to understand, and in general,
               should contain basic information about  the type of disaster addressed.
               For example, a hurricane awareness brochure should include:

                    1.   Definition of "hurricane watch" and "hurricane warning" and other
                           National Weather Service (NWS) terms.

                                                   20

                    2.   Response activities to take place when a hurricane watch and/or
                           warning is issued (i.e. means of securing the home, supplies
                           to take to a shelter).
                    3.   Evacuation map showing, as a minimum, low lying areas expected
                           to experience flooding, evacuation routes, and shelter locations
                           and descriptions.
                    4.   Information about flood insurance protection.
                    5.   Where to get information about an approaching storm and necessary
                         response activities (i.e. radio and television stations).

               Material should be geared to special groups such as boat owners, hotel/motel
               owners, children, the elderly, and others.

               Public Meetings, whether for the general population or special segments
               of it, should be entertaining as well as informative. Basic information
               presented at hurricane awareness meetings should include:

                    1.   Science of hurricane development and hurricane history of the area.
                    2.   Pre-season preparedness (encourage "family disaster plans").
                    3.   NWS hurricane warning system and/or other disaster warning systems.
                    4.   Pre-disaster preparedness (i.e. in a hurricane awareness program
                         this should include, but not be limited to, how to secure your
                         home and/or business and property, what provisions to make,
                         and what to do if evacuation is necessary).

               Special Activities to supplement general meetings and presentations can
               include:

                    1.   Classroom presentations, displays, and projects in schools.
                    2.   Presentations and displays for major employers.
                    3.   Presentations and displays for the elderly, Girl and Boy Scouts,
                         and at boat marinas.

               Audio-Visual Aides can include:

                    1.   Films.
                    2.   Tapes.
                    3.   Slides.
                    4.   Posters.

                    Production and distribution centers can include:

                    1.   Substate/regional planning agencies.
                    2.   Schools and universities.
                    3.   Libraries.
                    4.   Civic clubs.
                    5.   Private organizations (i.e. banks, utility companies).
                    6.   State and local civil defense.

               The News Media, in addition to regular news coverage promoting public meetings,
               can undertake a series of special efforts. Special efforts could include:

                                                   21

                    1.   Feature stories and articles.
                    2.   Interviews with noteworthy individuals (i.e. NWS forecaster, survivor
                         of a disaster, safety engineer of a nuclear plant).
                    3.   Public service announcements,
                    4.   Promotional activities.

               Private Organizations and Volunteers are resources that should be tapped in
               order to saturate the community with public information about disaster
               preparedness. Among these resources are:

                    1.   Churches.
                    2.   Civic groups.
                    3.   Professional organizations.
                    4.   Volunteers.
                    5.   Business and industry (to include developers, construction
                           contractors).

                                               Mapping

               Three basic map needs for disaster preparedness programs were
               identified in the survey of coastal region planning agencies, civil defense
               officials, and local governmental officials:

                    1.   Planning.
                    2.   Emergency Operations Center (EOC) use.
                    3.   Public information.

               Existing basic map resources are:

                    1.   U. S. Geological Survey (U.S.G.S.) topographic maps.
                    2.   DOT county highway maps.
                    3.   NOAA/National Ocean Survey (NOS) STEM Series.
                    4.   FEMA Flood Insurance Administration (FIA), Flood Hazard Boundary
                         Maps (FHBM), and Flood Insurance Rate Maps (FIRM).

               Maps for Planning must show detail in natural and man-made features,
               particularly when used as a base for computer generated storm surge data
               in hurricane evacuation planning. In order to be used for planning
               purposes, the following information should appear on any of the above
               listed base maps:

                    1.   Identification of additional elevations (both maximum and
                           minimum) .
                    2.   Updates of population figures.
                    3.   Major development areas.
                    4.   Storm shelters, showing primary, secondary, and refuge sites with
                           associated elevations.
                    5.   Major hospitals.
                    6.   Additional "area" names.
                    7.   Number of lanes in evacuation routes.
                    8.   Major bridges (identify type of structure, i.e., draw bridge).
                    9.   Addition of-new road construction or other important roads.

                                                     22

                Maps for the EOC should involve maps showing the entire region and its
                relationship to adjacent counties outside of the immediate area.

                Of the four map sources noted, U.S.G.S., DOT, and planning agency maps show counties
                as a whole. Only planning agency maps are likely to show the entire region.
                Use of these maps would require addition of the following:

                     1.   Evacuation zones for counties, cities, and major development areas.
                     2.   Schools.
                     3.   Hospitals, medical clinics, and other care facilities where a
                            dependent population would be located (i.e. nursing homes).
                     4.   Major employers.
                     5.   Area command posts (i.e., communication, transportation).
                     6.   Major potential traffic congestion areas.
                     7.   Road blocks.

                Maps for the Public should be clear, concise, and easy to read. Basic
                information should include:

                     1.   Evacuation zones.
                     2.   Evacuation routes.
                     3.   Location of primary, secondary, and refuge shelters.
                     4.   Flood stage areas and minimum and maximum elevations.
                     5.   Hospitals.

                The purpose of such maps is to inform the public, as simply as possible,
                whether they are in a danger area, where they should go, and how to get
                there.

                A Uniform Ma2ping System can alleviate confusion. Through the survey of state
                emergency services agencies, it was found that at local levels a variety of mapping
                techniques and tools are employed. In 56 percent, DOT county road maps were used
                as a base. Forty percent used some other form. STEM maps were used in only
                four states, or 16 percent. In many of these areas, STEM maps were not
                yet available. Only 40 percent produced maps for public information.

                Hazard awareness maps currently do not reach a large number of people.
                As interest increases and methods for publication and dissemination are
                widely employed, a uniform system of symbols will provide a national standard
                for hazard awareness symbols. Map symbols found to be used by major map
                producers, as well as map users, resulted in the suggested uniform symbols
                shown in Figure 2.

                Alternatives for Production include graphic assistance and printing. Actual
                technical assistance in drawing maps can be provided by a number of possible
                sources:

                     1.   City or county engineers or planners.
                     2.   DOT mapping division.
                     3.   State Civil Defense.
                     4.   Private contractor.
                     5.   College students/interns.
                     6.   Substate/regional planning agency.

                                                    23

                                              FIGURE 2

                                      SUGGESTED UNIFORM MAP SYMBOLS

                Buildings                   Shelter (1-Primary, 2-Secondary, 3-Refuge.
                                            Primary shelters indicate the preferred or
                                            first shelters to become operational; Secondary
                                            shelters indicate those to be opened when primary
                                            shelters are occupied. Refuge sites indicate
                                            places where residents can take refuge only if
                                            they have no other alternative).

                                            Hospital*

                                            School or Institution*

                                            Major Employer*

                                            *These installations are not necessarily shelters.
                                            They locate substantial numbers of people or
                                            dependent groups who may require special attention
                                            or assistance.

                 Transportation             Primary highway, hard surface

                                 EMEMCI     Secondary highway, hard surface

                                            Light-duty road, hard or improved surface

                                            Unimproved road

                                            Dual highway

                                            Evacuation route (number denotes # of lanes if
                                 JW=4       more than 2, arrow denotes direction of travel)

                                        1 1 Railroad

                                            Bridge

                                            Airport

                Topography
                                    x7369   Spot elevation

                                  @-40_,--  Index contour

                                            Low lying area (flood stage denoted by shading
                                            or color)
                                 , I W=E

                                                    24

                Printing capabilities may be found at the following:

                     1.   DOT or other state agencies.
                     2.   Corps of Engineers.
                     3.   State Civil Defense.
                     4.   College or university.
                     5.   Private printer.
                     6.   Newspaper.
                     7.   Substate/regional planning agency.

                The actual process for obtaining planning maps will be through distributing
                agencies such as NOAA, U.S.G.S., DOT or the regional agency. EOC maps will
                not be reproducible while maps for the public will involve the most
                extensive reproduction process. The most cost-effective method of
                reproduction is through use of black and white prints.

                                              Mitigation

                Mitigation is a term used to mean activity which will reduce or lessen
                the effect of an event. In terms of flooding, the interest is to protect
                existing development. A comprehensive regional plan should be the basis
                for flood mitigation efforts.

                Congress created the NFIP in 1968 in the face of yearly increasing property
                losses in the nation's flood plains. The purpose of the program was to
                make flood insurance available at an affordable premium and to encourage
                more careful planning in use of the flood plain.

                The burden of adopting and enforcing flood plain regulatory measures is on
                local government. The assistance provided to local government by FEMA is
                primarily through a liaison and through the state flood plain management
                office. Model ordinances are provided and a loosely structured monitoring
                program. Staff is simply not available to assist each and every community
                in building and implementing a sound flood plain management program. The
                burden realistically rests at the local level. Beyond the requirements of
                the NFIP, local governments can employ the tools discussed here.

                Zoning and Local Ordinances are preceded by land use planning. With the
                adoption of zoning ordinances the community has, in essence, developed
                policies about the growth of the area.

                Such regulations can:

                     1.   Identify ecologically fragile or high hazard areas.
                     2.   Control density, type and presence of development.

                Subdivision Regulations can also regulate development of the flood plain.
                Under such regulations, the developer must meet certain requirements in
                order to build.

                Such regulations can:

                                                      25

                     1.   Disallow development in high hazard areas.
                     2.   Require flood protection to property and structures prior to
                            dedication and sale.
                     3.   Regulate the design or access of public utilities.

                Building Codes and Techniques can require compliance with a
                minimum of building standards. Codes can include requirements for:

                     1.   Elevation.
                     2.   Building practices.
                     3.   Building materials.

                A Building Permit System is required through the NFIP. The
                local building inspector plays a vital role in the enforcement of such a
                system. The requirement of a registered land surveyor's certificate
                of approval is the building inspectors support in ensuring that
                requirements have been met,

                Open Space and Land Acquisition programs can retain the flood plain and
                maintain it in its natural state. No man-made obstructions are created,
                therefore, flood damage is minimal or non-existent in that open space area.

                Open space can be:

                     1.   Acquired by the community.
                     2.   Required of developers in new subdivisions.

                Relocation of Existing Structures

                Repeated loss in the flood plain area causes a financial burden for federal,
                state, and local governments as well as private property owners. It is
                clear that mitigation alternatives should be explored. It has been found
                in several areas that relocation of structures in the flood plain is a
                cost-effective alternative.

                Relocation alternatives include:

                     1.   Relocation of existing dwellings.
                     2.   Relocation of restrictive bridge structures.
                     3.   Community redevelopment plans which include provision for
                            acquisition, clearance, disposal, reconstruction, rehabilitation,
                            and relocation of displaced persons.

                Erosion and Sediment Control ordinances are generally intended to mitigate
                sedimentation and erosion effects but can result in the following practices
                regarding flood plain management:

                     1.   Bank stabilization accomplished through vegetative covering.
                     2.   Channel improvements accomplished through removal of sediment
                            and debris to improve carrying capacity of a stream.

                                                     26

                Structural Measures such as construction of reservoirs for flood control can
                reduce the magnitude of floodwater levels. Development of watershed
                management programs and construction of channel improvements generally have
                a positive impact on flood flows. There are times when structural measures
                are the most logical, cost-effective and, possibly, the only means of
                protecting what exists in the flood area.

                Structural measures include:

                     1.   Storage reservoirs with gates to control the release of water.
                          Ungated reservoirs will produce a similar effect, although
                          discharge openings in detention reservoirs should be designed
                          to ensure that a greater than normal discharge does not occur.

                     2.   Channel improvements to increase capacity including straightening,
                          realigning, installing stabilizing structures, changing floodway
                          and bank vegetation, and paving.

                     3.   Levees to confine river and overbank flows and protect the
                          landward area.

                Discouragement of Development can be argued as a prudent flood plain
                management technique.   This may not always be feasible. However, deterrants
                can be employed to discourage development of the flood plain. They include:

                     1.   Public information.
                     2.   Warning signs.
                     3.   Historic hazards data.
                     4.   Tax assessment practices.
                     5.   Public facility extension.

                Flood Warning and Evacuation Plans are vital in saving lives in time of flood
                occurance. Review of emergency plans for evacuation is also a form of mitigation.
                Generally speaking, there is probably no greater tool to reduce the effects of a
                potential hazard than to be prepared for its occurence.

                Long Range Planning is a concept that considers the economic, social, political,
                and physical issues of an area. When formulated with public participation and
                adopted by the local governing body, a comprehensive plan reflects the goals,
                policies, and objectives of the body and the community.

                The planning process is defined in six steps:

                     1.   Identify the problems and define goals, policies, and objectives.
                     2.   Collect and interpret relevant data.
                     3.   Formulate a plan of action.
                     4.   Evaluate the impacts resulting from that action.
                     5.   Review and adopt the plan.
                     6.   Implement.

                                                     27

                     Other Mitigative Measures. Mitigation is a general term and applies not
                     only to flood related disasters. Other emergencies such as tornadoes,
                     earthquakes, hazardous material incidents, and nuclear events all require
                     protective measures.

                     The following examples illustrate other mitigative alternatives:

                          1.   Disaster preparedness planning - plan for response to a
                               disaster (i.e. evacuation due to a hurricane, toxic
                               chemical spill, or nuclear disaster).

                          2.   Risk planning -- determine where the greatest risk areas are
                               and develop land use standards so that subsequent development
                               will sustain the potential effects of disaster (i.e. geologic
                               fault areas with respect to earthquake occurance).

                          3.   Transferrable development rights - transfer land development
                               rights from risk area to a less dangerous area (i.e. away from
                               geologic fault area or flood plain).

                          4.   Hazard assessment -- take an inventory of hazardous sites or
                               possible occurrences (i.e. producers or handlers of hazardous
                               materials).

                     Assistance or Training Needs and Providers. The planning and assistance
                     needs of local government personnel charged with the responsibility and
                     enforcement of disaster mitigation activities varies greatly. Urban
                     local governments generally possess greater capabilities than rural areas
                     in adequately enforcing hazard mitigation ordinances. Rural local
                     governments tend to possess the lowest level capabilities in adequately
                     enforcing hazard mitigation requirements. In order to provide a consistent
                     level of enforcement of local hazard mitigation requirements among all
                     local governments, it is necessary to implement training and assistance
                     programs. This can be accomplished through substate/regional planning
                     agencies who work directly with local governments toward the implementation
                     of various community development projects and programs.

                     Specific activities can include:

                          1.   Assistance to state flood plain management offices in organizing
                               and hosting training workshops for local flood plain managers
                               and the general public to include lending institutions, land
                               developers, industries, and other private and public groups
                               concerned with physical development.,

                          2.   Assistance to local flood plain managers in working toward
                               correcting existing deficiencies in local ordinances and assisting
                               local officials in properly administering these ordinances.

                                                     28

                Federal, State and Local Involvement

                FE11k is the primary agency providing hazard mitigation programs. In addition,
                other federal programs, though not intended for hazard mitigation specifically,
                have provided a community betterment spirit. They include:

                     1.   The Housing Act of 1964, which provides Comprehensive Planning
                          Assistance Program funds ("701") through HUD to states and
                          local governments for physical planning.

                     2.   The Clean Water Act which provides funding to state and local
                          governments for managing both surface and subsurface water
                          quality.

                     3.   The Coastal Zone Management (CZM) Act of 1972, which allows
                          states and local governments to plan for the conservation of
                          appropriate coastal resources.

                Primary legal responsibility rests with local government to employ these
                programs in the best manner to mitigate hazardous events in the community.

                Mitigation and Substate/Regional Agencies

                Local governments, for the most part, do not possess the financial resources
                to undertake extensive programs to find cost-effective tools and techniques
                for disaster mitigation. They are forced to deal with pieces of the puzzle
                in the best ways they can.

                Since mitigation is "planning to reduce loss," the nature of mitigation
                activity is innate in substate planning agencies. From their inception,
                substate/regional agencies have been involved in regional planning. It
                is a natural progression to expand the area of technical assistance now
                provided through existing reosurces to include hazard mitigation assistance.
                Previously stated resources such as demographic and map data, technical
                expertise in administration, soils capabilities, hydrology, law enforcement,
                and planning are there to be applied to any new field of work.

                Conclusions of the "Elements of the Program" Section

                Four basic components are needed to formulate a regional comprehensive
                disaster preparedness program: planning, education and public awareness,
                mapping, and mitigation. A framework or outline is also necessary upon
                which to build such a program. Finally, direct technical assistance
                is necessary for each unit of local government to implement the program
                locally as well as regionally.

                Recommendations:

                0    A formal training and education program should be developed in each state
                     for all local officials. It should include workshops, simulated response
                     exercises, and printed guidebooks.  Substate/regional planning agencies
                     should be utilized to provide staff in aiding the development,
                     distribution, and implementation of training and education programs.

                                                     29

                0    A regional network for communication should be established, including
                     all possible resources.

                0    Local civil defense departments should designate a public information
                     officer.

                0    An advisory council subcommittee on communication and warning should
                     be utilized in coordinating communication resources in the region.

                0    Substate/regional planning agency staff should be used in aiding research
                     and applications of cost-effective communications systems and in coordinating
                     resources of the region.

                a    A comprehensive equipment, services, and personnel resource listing should
                     be formulated by political subdivision and compiled to reflect regional
                     capabilities.

                0    An advisory council subcommittee on resources and coordination, representative
                     of the region served, should be utilized in preparing resource listings.

                0    Substate/regional planning agencies should be utilized to provide technical
                     assistance in developing coordinated resource listings for local
                     governments.

                0    Evacuation plans should be developed for each county, burrough or parish
                     (and municipality where necessary or practicable) which coordinate with
                     adjacent political subdivisions and all groups/agencies providing
                     assistance. Plans should be developed by county government in urban
                     areas to include municipalities within the county and in coordination with
                     regional planning commissions in non-metro areas.

                0    Evacuation plans should use the most accurate methods and data available
                     in determining egress routes and should be updated by the county and
                     substate/regional planning agency annually.

                0    An advisory council subcommittee should be used in coordinating plans
                     and resources for effective evacuation.

                9    Federal and state emergency management agencies should extend capabilities
                     by using substate/regional planning agencies to provide technical assistance
                     to local governments in evacuation planning.

                     A coordinated regional shelter program should be developed by local civil
                     defense organizations. This program should include results of inventories
                     by local political subdivision.

                �    An advisory council subcommittee on shelters should be used in formulating
                     a shelter program.

                �    Substate/regional planning agencies should be utilized as resource groups
                     and technical assistants to state and local governments in formulating
                     shelter programs.

                                                     30

                �    Local units of government should develop comprehensive guidelines for
                     post-disaster clean-up and recovery programs which are coordinated with
                     other governments in the region.

                �    An advisory council subcommittee should be used in developing a post-disaster
                     clean-up and recovery program.

                0    Substate/regional planning agencies should be used to assist state
                     and local government in post disaster clean-up and recovery planning
                     and services.

                �    Local governments should develop and implement a hazards awareness programs,
                     including printed material and public presentations. This program should
                     involve all segments of the comm unity and directly address special
                     populations.

                �    The news media should be used as a consultant in developing a public hazard
                     awareness campaign.

                �    Substate/regional planning agencies should be used by state and local
                     government as a coordinator and technical assistant in developing
                     educational programs for disaster awareness,

                �    Communities should develop and distribute hazard awareness maps for
                     public information.

                �    Local government should be provided map resources identifying hazards and
                     response tools,

                �    A standard format for hazards mapping should be developed to include
                     uniform symbols (e.g. evacuation routes, shelters) and design guidelines,
                     where practicable, for scale, color, and typeface. Such maps should be
                     created for use at the local, regional (multi-county), state and national
                     scale and produced by substate/regional planning agencies and state and
                     federal emergency management agencies.

                0    Substate/regional planning agencies should be utilized to provide
                     technical assistance to local government in mapping, thereby, building
                     the capacity of state and local emergency service agencies.

                0    States should provide greater financial and technical assistance to local
                     governments to encourage hazard mitigation activities.

                0    Substate/regional planning agencies should be used by state and local
                     governments as a technical assistant and liaison in more intense hazard
                     mitigation efforts.

                0    Comprehensive land use plans and community development plans should
                     contain a hazard mitigation element to identify implementation alternatives.

                                                    31

                                          VII. COORDINATION

                To achieve maximum involvement of all groups, it is important to identify
                the planning activities undertaken and the responsibilities of various
                agencies within the state. As a case study, Georgia's coastal area was used in
                identifying existing disaster response plans and groups/agencies with
                designated roles in disaster preparedness, recovery, and response.

                Research and Findings

                In Georgia it was found that at least 17 different plans existed in the coastal
                area. No means for coordination was specifically set out for the plans.
                Additionally, there appeared to be no formal means or criteria for ensuring
                regular revision of all existing plans. Elements of each plan were
                similar in some cases but not consistently the same in all. In summary,
                many of the basic tools for a comprehensive disaster preparedness program
                exist within the array of plans described, but were not put to work in a
                consistent manner cognizant of regional needs.

                A total of 23 Georgia state agencies have been identified in the Georgia
                Natural Disaster Operations Plan (NDOP) as respondents to local requests for
                assistance. Additionally, approximately fifteen federal agencies, in total,
                were identified as having some role in disaster preparedness, response, or
                recovery.

                Under various conditions, local governments can receive assistance from
                these agencies. For example, state aid is available when local resources
                have been exhausted. Federal aid may be provided when state resources are
                exhausted. Certain types of assistance may be available whether or not a
                Presidential declaration has been made and others will be available only
                with such a declaration. Thus, it is critical that local governmental
                officials understand what services are available to them and under what
                circumstances. In terms of the capability for delivery of services to local
                government, further detailed research is required to define specific services
                provided.

                Conclusion

                A mechanism for coordinating basic tools can be provided through the advisory
                council on disaster preparedness and through the use of existing substate/
                regional planning agencies. Such agencies can coordinate local and state
                plans for optimum use at the local and regional level. They can also
                coordinate various state programs and various federal programs for use
                at the local level. Disaster related programs and the coordination of these
                are a likely extension of existing regional planning commission services.

                                                     32

    'A

                Recommendations:

                     Each coastal county should develop a hurricane response plan as part of
                     a comprehensive disaster preparedness program. This plan should be
                     coordinated with all appropriate plans in the area.

                0    Each inland county should develop emergency response plans as part of
                     a comprehensive disaster preparedness program coordinated with all
                     appropriate plans in the area.

                0    Business and industry should be strongly encouraged to develop in-house
                     emergency response plans coordinated with appropriate city, town or
                     county plans.

                0    State agencies and military installations should develop emergency
                     response plans in close coordination with state emergency management
                     agencies and appropriate city, town or county plans.

                0    Each plan should include, at a minimum, these elements: (1) training/
                     education, (2) communication/warning, (3) inventory of resources/coordination/
                     emergency services, (4) evacuation/transportation, (5) shelters, (6) clean-up/
                     recovery.

                0    A regional advisory council on disaster preparedness should be utilized
                     to insure coordination of planning tools and written plans developed in
                     the region.

                0    Mutual aid agreements should be formulated between agencies and units of
                     government to ensure coordination and emergency service support.

                0    Substate/regional planning agencies should be used by state and local
                     governments to provide technical assistance in developing disaster
                     preparedness plans.

                                                     33

                                 VIII. APPLICABILITY TO ALL DISASTERS

                The tools available to local governments in preparing for disasters of
                all types are quite basic. They consist of the advisory body (as
                described in the "Advisory Council and Subcommittees" section) and
                the following:

                     1.   Plans.
                     2.   Maps.
                     3.   Educational and public awareness programs.
                     4.   Mitigation activities.

                The processes used to arrive at each are the same for any disaster. Solutions
                to specific problems will be the only variable.

                Research and Findings

                It has been determined that local government is the first "line of defense"
                against a disaster occurance. It has also been determined that disasters
                are not usually site specific problems, but, more often, regional in nature.
                Most local governments, then, share the problem and the solution should
                be representative of the region as a whole.

                Therefore, an advisory council on disaster preparedness representative of
                local governments in any region, can guide the development of any disaster
                preparedness program. Formation will involve identification of primary
                and support responsibilities in response to the hazard in question.

                Plans

                The components of written response plans will basically be the same for all
                disasters. There will be added considerations, but six basic elements
                serve as a foundation. A subcommittee for each can help guide development
                of a comprehensive plan.

                The six basic planning elements are:

                     1.   Training and Education. Training for responding personnel will
                          be necessary regardless of the type of disaster. Trained response
                          is just that. Obviously, the type of disaster to be dealt with
                          will have impact on the content of the training program.

                     2.   Communication/Warning. Communication and warning will always be
                          necessary as long as there is population in danger. Types of
                          communications and warning systems may vary depending on the
                          type of emergency.

                                                       34

                     3.   Inventory of Resources/Coordination/Emergency Services. An
                          inventory of resources is good management in any situation.
                          Know what the options are. Make certain they are dependable
                          resources. Local governments should maintain a resource listing
                          of all emergency equipment, service, and personnel. The listing
                          should be revised regularly and should be specific.

                     4.   Evacuation/Transportation. If evacuation is a necessary response,
                          egress routes either out of a building, a city, or a county should
                          be specifically identified based on carrying capacity and
                          structural adequacy. Problems resulting in the blockage of
                          smooth traffic flow (pedestrian or vehicular) should be anticipated.
                          The evacuation plan should be tested, when possible, in a "fire
                          drill" or similar drill.

                     5.   Shelter. A shelter plan is a part of all disaster plans. A
                          current listing of shelter locations must be maintained
                          recognizing that different disasters will require different
                          shelter criteria.

                     6.   Clean-up and Recovery. Clean-up and recovery procedures may vary
                          depending on the emergency. However, the process of coordinating
                          forces and equipment to execute recovery efforts will be the
                          same.

                Education and Public Awareness

                Basic tools in implementing hazard awareness campaigns for the public
                include those stated previously in the "Elements of the Program" section. For
                example, the same groups can be used in spreading the word about nuclear
                preparedness efforts as are used in flood preparedness efforts. All can be
                accomplished through regular, ongoing efforts or special periodic activities.
                Civic groups and the news media, as well as professional organizations, are
                especially valuable vehicles for such a campaign. Special population
                concentrations and schools should be addressed by special presentation.

                Mapping

                In mapping for disaster prearedness, the risk area, jeopardized population,
                or location of the hazard itself may be identified. Whatever the case,
                the first step is in obtaining the base map. The base map will be chosen
                with regard to information necessary to properly identify the hazard
                in question.

                Suppliers include:

                     1.   U.S.G.S.
                     2.   NOAA, NOS.
                     3.   DOT.
                     4.   Substate/Regional Planning Agency.
                     5.   Department of Natural Resources (DNR).
                     6.   Bureau of Land Management (BIM).

                                                    35

                    7.   Corps of Engineers.
                    8.   FEMA, FIA.
                    9.   Forestry Commission.

               if there is need for special mapping, the next step is to locate a source
               of technical assistance. Mapping assistance can be found through:

                    1.   Substate/regional planning agencies.
                    2.   County and municipal engineering or tax offices.
                    3.   Private consultants.
                    4.   State agencies such as DOT and DNR.
                    5.   The Corps of Engineers.
                    6.   Colleges and universities.

               In reproduction and actual printing, the options are similar to those listed
               in the mapping section. They include basically any group that maintains in-house
               printing facilities. Local governments may be able to uegotiate an
               arrangement with any of the following:

                    1.   Regional planning agency.
                    2.   Colleges or universities.
                    3.   Schools.
                    4.   Private industry.
                    5.   DOT, DNR or other state agency.
                    6.   Corps of Engineers.
                    7.   Local newspaper.
                    8.   Commercial printer.

               Mitigation

               Mitigation, in general, is necessary to protect existing development and
               associated population, to protect fragile environments, and to reduce
               the financial loss incurred. The measures employed for mitigation are
               far reaching and include all types of disasters.

               Four alternatives are the same for all disasters:

                    1.   Protect existing development from the hazard.
                    2.   Remove or correct existing development to prevent it from being
                         damaged by the hazard or remove or correct the hazard source
                         itself, if possible or practical.
                    3.   Discourage development in the hazard area.
                    4.   Regulate land use in the hazard area or regulate the hazardous
                         use itself.

               Conclusion

               The same basic preparedness tools available to local governments apply to all
               types of disasters.

                    1.   Create an advisory group representative of the region to be served.
                    2.   Plan for scheduled response to possible hazards.

                                                  36

                     3.   Develop and implement an education/public awareness program to
                          train public officials and citizens how to respond to a
                          disaster.
                     4.   Map hazard related data.
                     5.   Implement programs to mitigate the effects of a disaster.

                As discussed in the previous section, substate/regional planning agencies
                are a viable mechanism for providing direct technical assistance to
                state agencies and local governments in carrying out the program elements
                in any disaster situation.

                                                   37

                           IX. TRANSFERABILITY FOR USE AS A NATIONAL MODEL

                In order to be effective and transferable, any "model" document or program
                must be accompanied by specific methods for implementation. The most
                innovative idea may not be used if it is not marketed.

                Research and Findings

                                       National Interest Groups

                One of the most effective means of marketing a model program with national
                implications is to use national interest groups as a vehicle for
                transfer. In terms of disaster preparedness and regional/local implications,
                such groups include, but are not limited to:

                     National Association of Regional Councils (NARC)
                     National Association of Counties (NACo)
                     National Association of Development Organizations (NADO)
                     American Planning Association (APA)
                     Council of State Governments
                     National League of Cities
                     U. S. Conference of Mayors
                     International City Managers Association (ICMA)
                     International Association of Police Chiefs
                     International Association of Fire Fighters
                     National Fire Protection Association
                     National Sheriff's Association

                Through annual gatherings as well as other communicative mechanisms, these
                organizations provide a forum for their members to discuss common areas
                of interest, problems, and more effective ways of doing their jobs. All
                of the organizations directly touch the local governments responsible
                for disaster preparedness, response, and recovery. This is a market
                place for offering problem solving techniques and the place for
                expanding existing capabilities.

                In addition to the groups cited above, such centers as the National Hurricane
                Center and Natural Hazards Research Center at the University of Colorado,
                the National Association of Flood Plain Managers, and Coastal Regional
                Information Centers (RCIC's) provide information to local, state, federal
                government as well as other groups.

                One of the primary tools for transferring information for use by others is a
                comprehensive training packet. Such a packet could be used as support
                material for presentations at conferences, seminars, and training sessions.
                The training packet for disaster preparedness should contain items such as:

                                                     38

                     1.   A checklist of key agencies (federal, state, local) involved in
                          emergency preparedness and response.

                     2.   Methods used in:
                          A.   Developing evacuation maps.
                          B.   Working with "host" localities and others in areas adjacent
                               to primary disaster areas.
                          C.   Developing educational programs.
                          D.   Setting up response teams.
                          E.   Formulating plans.
                          F.   Developing land use ordinances for mitigation purposes.

                     3.   Examples of:
                          A.   Evacuation maps.
                          B.   Educational material.
                          C.   Plans (local).
                          D.   Model ordinances for mitigation purposes.

                                       State and Federal @&encies

                Emergency management agencies in all states can use the comprehensive
                model for disaster preparedness and the technical assistance of substate/regional
                planning agencies to build their capabilities. Substate/regional planning
                agencies exist in all states, making their use as a technical arm of state
                emergency management agencies a viable alternative. As stated previously,
                it was found that 40 percent of the states surveyed currently use substate/regional
                planning agencies in some way. Specific uses were evacuation planning,
                data collection, local review of state assisted response plans, provision of
                map resources, and assistance in the NFIP. A total of 68 percent of all
                states indicated functions for regional agencies, in addition to those now
                performed, would be useful in increasing state capabilities. These additional
                functions could include providing technical assistance in preparing plans and
                developing education and awareness programs.

                State agencies in addition to emergency management agencies could use the
                model, as well. Agencies such as the DNR, DOT, and Department of Human
                Resources (DHR), to name a few, are required to maintain an emergency
                coordinator and emergency plans. State agencies can use the model just as
                local governments can.

                The process and tools described in this document are also appropriate for
                use by federal agencies involved in disaster, preparedness, response, and
                recovery. Federal agencies providing such services are:

                     1.   U. S. Department of Agriculture (USDA).
                     2.   HUD.
                     3.   Small Business Administration (SBA).
                     4.   U. S. Army Corps of Engineers.
                     5.   U. S. Army.
                     6.   U. S. Navy.
                     7.   Federal Bureau of Investigation (FBI).
                     8.   NOAA/NWS.
                     9.   Economic Development Administration (EDA).
                     10.  Federal Emergency Management Agency (FEMA).

                                                       39

                Each agency listed above has some program or plan of action for times of
                emergency. Though the elements of an emergency plan will not be the same
                for all agencies, part or all of the basic format can be used. For example,
                the Army, Navy, and USDA Forestry Commission could employ all elements listed
                here for a disaster plan. On the other hand, in some instances, only a portion
                of the elements may be applicable. For example, HUD's primary consideration
                would be temporary housing in the recovery stage and the FBI would be concerned
                with investigation in the recovery stage.

                Coordination of resources certainly applies to all agencies, as does
                communication and training. The comprehensive and coordinated nature of a
                written plan is an intangible asset but produces tangible results.    -

                The mapping element of the program will apply nationwide due to the fact
                that resources of many agencies are mapped. For example, HUD would need
                to know where staging areas are located in order to provide for
                temporary housing. The Navy and Army would benefit from storm surge
                model adaptation if they are located on the coast such as Kings Bay
                Submarine Support Base in Georgia and a similar base in Kitsap County in
                Washington, A uniform symbol approach to mapping is not a new idea but
                could produce extreme benefits to all when extended to hazards awareness
                maps.

                NOAA will benefit directly from work accomplished in the mapping effort of
                this program. That agency has determined that continued production of the
                STEM series is not possible without the involvement of state or local groups.
                Cooperative efforts in updating such maps would allow the continuation of
                the series.

                The education and awareness element should be of concern to all federal
                agencies as well as state and local. Public knowledge about the operation
                or assistance of federal agencies simply makes the federal role easier
                to implement in time of emergency. Many of the same tools can be used by
                federal agencies as well as in substate/regional programs.

                Mitigation is of special interest to all federal agencies. Disaster
                assistance is costing the federal government more money each year and
                FEMA is exploring ways to reduce loss. NOAA is also particularly active
                in hazard mitigation through the NWS, CZM, Sea Grant and its recent Coastal
                Hazards Initiative program. The model described here would be a useful
                tool not only in identifying specific mitigation alternatives but in
                viewing the program in total as a mitigative action to reduce the
                national loss of lives and dollars. In conjunction with NOAA's Coastal
                Mapping and Coastal Hazards Workshops, the entire model program could be
                transferred to other geographic areas.

                The Corps of Engineers is constantly working to mitigate adverse effects
                in flood areas. For example, the Fort Worth, Texas district recently
                published a notice of intent to prepare a draft environmental impact
                statement of flood protection activity in T exas. The alternatives and
                tools developed in this model program could be implemented by the Corps
                in other areas.

                                                    40

                Conclusion

                The regional alternative for implementation of this program is an attractive
                option for all agencies. Most federal agencies use national regions to
                implement programs. Many federal and state agencies currently use
                substate/regional planning agencies as a source of direct technical
                assistance to further carry out their programs. Benefit can be realized
                by federal, state and local groups in using substate/regional agencies to
                provide assistance throughout the country in disaster preparedness.

                Recommendation:

                The "Coordination, Education and Mitigation Model for Disaster Preparedness
                in Coastal Areas" should be transferred to other geographic areas through
                FEMA and state emergency management agencies with the assistance of other
                state and federal agencies and national interest groups.

                                                    41

                    X. STAFF/FINANCIAL RESOURCES NECESSARY TO UNDERTAKE THE PROGRAM

                   Budget for Implementation

                   The financial resources necessary for a regional agency to undertake the
                   model program will vary from agency to agency, depending on current level
                   of staff and agency work program. The budget presented in this section
                   assumes that the comprehensive disaster preparedness program being
                   undertaken by the substate/regional agency is a new program for the agency.
                   A two-year "start up" period is projected for program initiation with
                   maintenance of the program to continue one to three years after the
                   initial two-year period.                             Year One             Year Two

                   Personnel Costs

                        Disaster Preparedness Coordinator,
                        Planner, 5% Planning Director,
                        Cartographic and Secretarial Assistance         $ 31,804             $ 34,108

                   Fringe Benefits                                         8,905                9,550

                        Total Personnel Costs                           $ 40,709             $ 43,658

                   Travel                                                  3,000                3,500

                   Printing                                                4,000                7,500

                   Other Direct                                            1,000                   500

                   Inkind Services                                         6,000                6,000

                   Indirect Costs                                          29,310              31,434

                        Total Costs                                     $  84,019            $ 92,592

                   Staff Resources Needed

                   Two full-time staff positions are needed for the implementation of the
                   comprehensive disaster preparedness program. These positions, a disaster
                   preparedness/response coordinator and a disaster preparedness/response
                   planner, will require supervision by a planning director, senior planner
                   or executive director; cartographic; graphic; and secretarial support.

                                                         42

                 Possible Funding Sources

                 Several alternative funding sources have been identified for providing
                 financial impetus for implementation of a comprehensive disaster
                 preparedness program by a substate/regional planning agency. It is
                 probable that a "package" approach to funding will be the most practical
                 and viable.

                 Below are listed the possible funding options to consider in the initiation
                 of a regional disaster preparedness effort. A combination of the federal,
                 state, and local resources is suggested, including cash and/or in-kind
                 services:

                 (1)  Local funding (i.e. direct financial contribution from local units of
                      government).

                 (2)  State support through agencies such as emergency service agencies,
                      DNR, DHR, DOT.

                 (3)  Federal support through agencies/programs such as HUD ("701"
                      comprehensive planning program), CZM, Sea Grant, FERA, Department
                      of Health and Human Resources.

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