Coordination, education, and mitigation model for disaster preparedness in coastal areas

[From the U.S. Government Printing Office, www.gpo.gov]

$2.00
Ir

Nvo

0 MP 4ft 0

camp

MOW

dOM

-Now
4w6"
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
c.2 TA@
IEW7
imam

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.

S- Q-ty
T-

Coastal Area
Plaming and GEORG"
Developnmt Commission

\E F I N G H A
COASTAL GEORGIA
date: South Carolina
1980
prepared by:
Coastal Area Planning and Development Commission
V,

J@- C-ty
W@h C-Y

tv.,

F.,

U-11 C-y

B R Y A N . . .....

. ..... Atlantic
L 0 N G

Ocean
92

------------------

@,y

=7
M C I N T 0 S H

Atlantic

Ocean

G L Y

ALL
-wy @'y

A,--- -4-
c-Y A.-
c.,.t. c-ly c.,y Int--i ...........
C A M D N
-1y

S-- US G-,.- S.. DW &

b@ A@- V@

c-y
-n
Florida (C)

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.

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.

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.

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.

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.

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.

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:

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.

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.

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:

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.

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.

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:

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.

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.

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

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:

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.

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.

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.

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.

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.

� 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.

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.

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.

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.

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).

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.

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.

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:

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).

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.

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.

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.

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.

I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I
I

I
1101111111111111111 vi III 111111 , I
@ 3 6668 00002 0257 1