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

                 APALACI-IEE REGIONAL PLANNING COUNCIL

                 HURRICANE MITIGATION
                          PLANNING STUDY

        (5-

                     14
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                                               11W,

                                                                AnmWed n Red Crosis

                 HV          Franklin, Gadsden, Gulf, Jackson, Jefferson,
                 635.5     Leon, Liberty and Wakulla Counties
                 A63
                 1987

                                             APALACHEE REGION

                                        HURRICANE MITIGATION STUDY

                                               December 1987

                              The Apalachee Regional   Planning Council in

                              conjunction with the nine counties in the region

                              produced this document for the Division of

                              Emergency Management, Department of Community

                              Affairs.

                                This publication was funded by the Department

                                of Environmental Regulation, Office of Coastal

                                Management, 2600 Blairstone Road, Tallahassee,

                                Florida 32301 through a grant from the United

                                States Office of Coastal Resource Management,
                                National Oceanic and Atmospheric Administration,

                                under the Coastal Zone Management Act of 1982,

                                as amended.

                    APALACHEE REGIONAL PLANNING COUNCIL

                                       BOARD MEMBERS

                       E. L. Hires                       Calhoun County
                       Carlton Smith                     Calhoun County
                       Lee R. P. Rivers                  Franklin County
                       Kenneth Cope                      Franklin County
                       Uillie Speed                      Franklin County
                       Edward Kubicki                    Franklin County
                       Earl Lodge                        Gadsden County
                       Lenwood Herron                    Gadsden County
                       Millie Ann Forehand               Gadsden County
                       Kesley Colbert                    Gulf County
                       Durelle Johnson                   Jackson County
                       Robert Ringer                     Jackson County
                       Issac Pittman                     Jackson County
                       Mordaunt Bishop                   Jefferson County
                       Claude G. Carroll                 Jefferson County
                       Gayle Nelson                      Leon County
                       Betty Harley                      Leon County
                       Herbert Chandler                  Leon County
                       Greg Soloman                      Liberty County
                       Murray McLaughlin                 Wakulla County
                       Jo Anne Strickland                Uakulla County

                                         ARPC STAFF

                       Charles D. Blume                  ARPC Executive Director
                       Don Henningsen                    Planning Program Coordinator
                       Curtis A. Uaite                   Research Associate
                       Angel Cardec                      Regional Planner
                       Greg S. Dawkins                   Regional Planner
                       Mike Donovan                      Regional Planner
                       Marsha Harpool                    Regional Planner
                       Diane Hatcher                     TRC/DRI Secretary
                       Orma Jean Jeppson                 Executive Secretary
                       Dollie Reed                       Bookkeeper
                       Eva C. Hayes                      Uord Processor

    71

                                             TABLE OF CONTENTS
                                                                                     PAGE

                     Contents   ............................................             i
                     List of Tables    ......................................            v
                     List of Maps  ........................................           vii
                     List of Graphs    ......................................        viii
                     Introduction  ........................................              1
                     Objective  .........................     #.*.#*  ............       2
                     Study Purpose    .......................................            2
                     Region of Study    .....................................            3

                     Section I:
                     Response Recovery Plan     ..............................           5

                         Disaster Relief Programs     ....... 0 .................        7
                         A. Federal Programs    ............  I .................        7
                            1.  Federal Emergency Management Agency        ........      8
                            2.  Small Business Administration      ..............      10
                            3.  U.S. Army Corps of Engineers      ...............      10
                            4.  U.S. Department of Agriculture      .............      11
                                a. Farmers Home Administration      .............      11
                                b. Agricultural Stabilization and
                                   Conservation Services     ...................       12
                                c. Food and Nutrition Services      .............      12
                            5.  Department of Education     ....................       12
                            6.  Appropriate Bar Associations      ...............      12
                            7.  Internal Revenue Service     ...................       13
                            8.  Federal Highway Administration      .............      13
                            9.  Dept. of Housing and Urban Development        .....    13
                           10.  Federal Insurance Administration       ...........     14
                                a. Definition of Base Flood Map Zones        ......    15
                                b. Requirements for Areas in the Regular
                                   Phase   ....................                        17
                                c. Requirements for Areas Tha H ve
                                   Identified a Flood-way     ..................       21
                                d. Requirements for Areas that Have
                                   Identified V Zones     ......................       21
                                e. Base Flood Elevation and Flood-way
                                   Map Sources    .............................        22
                           11.  Emergency Conservation Program      .............      23
                           12.  Department of Labor     ........................       23
                           13.  Individual Family Grants     ............  0 ......    24
                           14.  Charitable Relief Programs      .................      24
                         B. State Programs   ...... 0-0   ........ *.............      26
                            1.  Florida National Guard     .....................       26
                            2.  Department of Natural Resources       ............     27
                            3.  Department of Environmental Regulations        ....    27
                            4.  Department of Transportation      ...............      27
                            5.  Department of Health and Rehabilitative
                                Services   ...................................         28
                            6.  Department of Labor and Employment
                                Security   ...................................         28

                             7. Disaster Relief Act    ........................      28
                             8. Citizens Assistance Centers     ................     29
                         C. Local Programs    ................................       29

                         Field Assistance   .................................        31
                         A. Disaster Field Offices     ........................      31
                         B. Disaster Application Centers      ..................     31
                         C. Civil Defense   .................................        32
                         D. Site Determination     ............................      32
                             Post Disaster Assistance     ......................     35

                         Temporary Housing    ................................       37
                         A.  Application Assistance    .........................     37
                         B.  Provisions to Eligible Applicants      .............    38
                         C.  Methodology ...................................         39
                         D.  Interpretation of Table's 4 through 19       ........   50
                         E.  Limitations ...................................         52
                         F.  Sources  ................                               52
                                         County                                      53
                         G.  Individual                sis  .....          ..... 0                  1
                         Individual Assistance     ............................      61
                         A. Individual and Family Grants      ..................     61
                         B. Low Interest Disaster Loans      ...................     61
                         C. Interpretation of Tables 20-23      ...... e .........   68

                         Public Assistance    ................................       71
                         A.  Replacement Costs   .............................       71
                         B.  Methodology ...................................         72
                         C.  Water Facilities   ..............................       72
                         D.  Waste Water Facilities    ........................      76
                         E.  Public Utilities   ..............................       79
                         F.  Transportation Facilities     .....................     82
                         G.  Nursing Homes  .................................        85
                         H.  Hospitals  .....................................        88
                         I.  Government Owned Facilities     ...................     91

                      Section II:
                      Prevention of Future Losses     .........................      95

                         Future Development    ...............................       97
                         A. Procedure   .....................................        98
                         B. Assessment of Evacuation Time and Routes        ......   98
                         C. Assessment of Shelter Adequacy      ................     106
                         D. Recommendations   ................................       107

                         Relocation Sites   .................................        109
                         A.  Damaged Housing   ...............................       110
                         B.  Water Facilities   ..............................       113
                         C.  Waste Water Treatment Facilities      ..............    115
                         D.  Health Care Facilities    ........................      115
                         E.  Electrical Facilities    .........................      117
                         F.  Educational Facilities    ........................      119
                         G.  Custodial Care Facilities     .....................     119
                         H.  Transportation Facilities     .....................     119

                         Future Development Sites    .........................      121
                         A. Inland Counties    .....................   0........ 0  121
                         B. Coastal Counties    ..............................      121

                         Public Acquisition    .....................   0 .........  123
                         A. High Hazard Regions    ...........................      123
                            1. Barrier Islands    ............................      123
                            2. Shoreline  .....                                     124
                            3. River Flood Plain     ..........................     124
                            4. Low Lying Areas    ............................      125
                         B. Public Acquisition Programs      ...................    125
                            1.  Federal Programs   ...........................      126
                            2.  State Acquistion Programs     ........ * .........  127
                                a. Conservation and Recreational Lands       .....  127
                                b. Land Acquisition Trust Fund      .............   128
                                c. Save our Coasts   .........................      128
                                d. Save our Rivers   .........................      129
                                e. Private Non Profit Programs      .............   129
                            3.  Local Government Land Acquistion       ..........   129
                         C. Methods of Land Acquisition      ...................    133
                            1. Fee Simple Acquisition     .....................     134
                            2. Leasebacks   ..........                              135
                            3.  Partial Lot Acquisition    ....................     135
                         D. Financing Public Land Acquisition       .............   135
                            1.  Land and Water Conservation Fund     ...........    135
                            2.  Resource Conservation and Development
                                Program  ....................................       136
                            3.  Water Resource Development Funds     ...........    136
                            4.  Florida's Water Management Trust Fund       ......  137
                            5.  Conservation and Recreational Lands
                                Trust Fund  .................................       137
                            6.  Watershed Protection and Flood
                                Prevention Losses    ..........................     137
                         E. Coastal Land Inventory     ........................     138

                         Growth Management Techniques     ....................      141
                         A. Police Power Regulations     ......................     141
                            1. Flood Hazard Zoning     ........................     142
                            2. Subdivision Regulations     ....................     142
                            3. Overlay Zones    ..............................      142
                            4. Mixed Use Zoning    ...........................      143
                         B6 Compensation Programs    .........................      143
                         C. Financial Incentives and Disincentives        ........  143
                            1. Incentive Zoning    ...........................      144
                         D. Taxing Policies    ...............................      145
                            1. Abatements   .................................       145
                            2. Exemptions   .................................       145
                            3. Tax by Hazard Assessment      ...................    146
                            4. Tax Increment Financing     ....................     146
                            5. Parcel Development Agreement      ......... 0 .....  146
                         E. Building Codes    ................................      146

                          F.  Other Techniques    ..............................       148
                              1. Impact Fees   ................................        148
                              2. Transfer of Development Rights       .............    148
                              3. Public Facilities Location       .................    149
                              4. Special Development Districts       ..............    149
                              5. Hurricane Redevelopment District        ...........   149
                              6. Sand Dune Regulations      ......................     150
                              7. Septic Tank Regulations      ....................     150
                          G.  Implementation Legislation      ....................     150
                              1. Coastal Management Element       .................    151
                              2. Coastal Construction Program       ...............    152
                                 a. Coastal Construction Control Line         .......  152
                              3. Developments of Regional Impact       ............    153
                              4. Areas of Critical State Concern        ............   154

                          County Mitigation Measures     ......................        155
                          A.  Calhoun .......................................          155
                          B.  Franklin  ......................................         155
                          C.  Gadsden .......................................          158
                          D.  Gulf  ..........................................         159
                          E.  Jackson .......................................          160
                          F.  Jefferson   .....................................        160
                          G.  Leon                                                     162
                          H.                                                           162
                          I.  Wakulla ..............   o ........................      164

                          Policy .........................................          oo 169
                          A.  New Development    ...............................       170
                          B.  Hurricane Reconstruction.,      ....................     170
                          C.  Local Governments   ...........  o  .................    171
                          D.  Development on Barrier Islands       ................    173
                          E.  Individual Homeowners     .........................      174
                          F.  Developers   ....................................        174
                          G.  Mobile Homes   ...o ..............................       174

                        Final Conclusion   .................................           177

                          APPENDICES
                                Appendix A:    The Three Periods of Post
                                               Hurricane Recovery    ..............    179
                                Appendix B:    Population by County in the
                                               Apalachee Region    ................    183
                                Appendix C:    Vulnerable Housing Units in
                                               the Apalachee Region      ....o.......  185
                                Appendix D:    The Saffir Simpson Scale    .... o ...  187

                         Bibliography .......................................          191

                                                     iv

                                       LIST OF TABLES

                  TABLE                                                    PAGE
                    1.     Civil Defense Directors in
                           the Apalachee Region .......................      33
                    2.     Location of Potential Disaster Field
                           Offices and Disaster Application Centers
                           in the Apalachee Region ...............0 ......   34
                    3.     Storm Scenarios Used in Individual
                           Assistance and Temporary Housing
                           Determinations .....               ......         40
                    4.     Projected Temporary Housing Needs Based on
                           Damage Greater Than 25 Percent:
                           Calhoun County ...............                    42
                    5.     Projected Temporary Housing N;;;S*,;;s*;d**o*n"**
                           Damage Greater Than 50 Percent:
                           Calhoun County .... ......                 ....   42
                    6.     Projected Temporary Housing Needs Base    0n
                           Damage Greater Than 25 Percent:
                           Franklin County ......................            43
                           Projected Temporary Housing Needs bas*;*o
                           Damage Greater Than 50 Percent:
                           Franklin County............. ... 00 ............  43
                    8.     Projected Temporary Housing Needs Based on
                           Damage Greater Than 25 Percent:
                           Gulf County, ........................ o.o  ...... 44
                    9.     Projected Temporary Housing Needs Based On
                           Damage greater Than 50 Percent:
                           Gulf County ......................o ...........   44
                    10.    Projected Temporary Housing Needs Based on
                           Damage Greater Than 25 Percent:
                           Gadsden County ............4 ..............0 ...  45
                    11.    Projected Temporary Housing Needs Based on
                           Damage Greater Than 50 Percent:
                           Gadsden County .... * ..........................  45
                    12.    Projected Temporary Housing Needs Based on
                           Damage Greater Than 25 Percent:
                           Jackson County ..............                     46
                    13.    Projected Temporary Housing ;;;d,;,;;;;;,On,***
                           Damage Greater Than 50 Percent:
                           Jackson County ...............................    46
                    14.    Projected temporary Housing Needs Based on
                           Damage Greater Than 25 Percent:
                           Leon County ..........                            47
                    15.    Projected Temporary Housing Needs Based on
                           Damage Greater Than 50 Percent:
                           Leon County  ..................................   47
                    16.    Projected Temporary Housing Needs Based on
                           Damage Greater Than 25 Percent:
                           Liberty County ...............................    48
                    17.    Projected Temporary Housing Needs Based on
                           Damage Greater Than 50 Percent:
                           Liberty County .........*......                   48

                                              V

                     18.     Projected Temporary Housing Needs Based on
                             Damage Greater Than 25 Percent:
                             Wakulla County    ................................        49
                     19.     Projected Temporary Housing Needs Based on
                             Damage Greater Than 50 percent:
                             Wakulla.County   ..................    0 .............    49
                     20.     National Flood Insurance Program Coverage
                             forthe Counties of the Apalachee Region            ...... 62
                     21.     Percent of Structures Insured Under the
                             National Flood Insurance Program for the
                             Counties of the Apalachee Region        ..............    64
                     22.     Estimated Structural Loss by Storm Scenario
                             for the Counties of the Apalachee Region         ......   65
                     23.     Total Individual Assistance Needed by Storm
                             Scenario by County: Apalachee Region        ..........    66
                     24.     Water Facility Replacement Costs by County         ....   73
                     25.     Waste-Water Facility Replacement.Costs by
                             County  ........................................          76
                     26.     Public Utility Replacement Costs by County         ....   79
                     27.     Transportation Facility Replacement Costs
                             by County  .............................       0......    82
                     28.     Nursing Home Replacement Costs by County         ......   85
                     29.     Hospital Replacement Costs by County        ..........    88
                     30.     Government Facility Replacement Cost by
                             County  ................................       0.......   91
                     31.     Estimated Clearance Time by County        ............   101
                     32.     Identification of Public Water Facilities
                             Located in High Risk Zones in the Apalachee
                             Region  ........................................         114
                     33.     Identification of Waste Water Treatment
                             Facilities Located in High Risk Zones in the
                             Apalachee Region... .... ......            *..to  ...... 116
                     34.     Identification of Hospitals and Nursing
                             Homes Located in High Risk Zones in the
                             Apalachee Region...    ..........  6..... to  .........  118
                     35.     Identification of Electrical Facilities
                             Located in High risk Zones in the Apalachee
                                                                                      118
                             Region  ............  0 ...........................
                     36.     Coastal Land Inventory In the Apalachee Region 139

                                                    Vi

                                       LIST OF MAPS

                   MAP                                                     PAGE

                   1.   Hurricane Scenario Paths ......................      41
                   2.   Identification of High Risk Zones:
                        Franklin County  ................................  102
                   3.   Identification of High Risk Zones:
                        Gulf County  ....................................  103
                   4.   Identification of High Risk Zones:
                        Jefferson County  ...............................  104
                   5.   Identification of High Risk Zones:
                        Wakulla County  .................................  105

                                             vii

                                       LIST OF GRAPHS

                  GRAPH                                                     PAGE

                    1.   Total NFIP  Coverage:
                         Apalachee Region ..............................     63
                    2.   Population Projections:
                         Apalachee Region ... ........                ...   184
                    3.   Vulnerable Housing Units:
                         Apalachee Region ................. 0       0.0e.   186

                                              Viii

                                            INTRODUCTION

                 Technological advancements in hurricane tracking and warning

                 systems have enabled us to safely evacuate greater numbers of

                 people in decreasing amounts of time. As evacuation procedures

                 become more efficient, coastal populations can intensify

                 without the worry of storm related fatalities. Unfortunately,

                 sharp increases in coastal populations have been accompanied

                 by intense shore-front development, which is vulnerable to

                 hurricane induced damage.        Coastal    property      recovery

                 costs  are    far too burdensome    for a  community    to   ignore

                 growth in high risk areas. Mitigation guidelines must be

                 enacted and enforced by each municipality vulnerable to

                 hurricane induced flooding.

                 This document is a continuation of The Apalachee Region

                 Hurricane Loss Study, which estimated the monetary damage that

                 would occur to property in the region based on 23 different

                 hurricane scenarios. The vulnerability of private property and

                 public facilities was exposed in the initial loss study. This

                 report utilizes the damage estimates contained in the first

                 study to determine the amount of assistance that may be

                 required based on tho.se scenarios, and suggests mitigation

                 techniques to prevent damage in the future.

                                            OBJECTIVE

                The first section of this study analyzes various state and

                federal assistance programs available to local governments and
                individ'uals in the event of a hurricane. This section profiles

                the location of Disaster Application Centers,(DACS) and

                Disaster Field Offices, (DFOS) within the counties of the

                Apalachee Region as well as the need for temporary housing,

                public assistance and individual assistance is also analyzed

                in section one.

                Part two of this report examines a methodology for

                future development review,      sites for relocation,     future

                development and public acquiry, ongoing hazard mitigation

                policies in each county and growth management tools that

                may be directed toward hazard mitigation. Finally hazard

                mitigation policies that each municipality in the region

                should consider, if they wish to avoid hurricane related

                losses are recommended.

                                          STUDY PURPOSE

                The purpose of this study is to formulate geographically

                specifi.c and quantitatively based long range response and

                recovery strategies as well as hazard mitigation policies based

                on estimated property losses that would occur from probable

                hurricane scenarios. The response and recovery and mitigation

                plan development involves the formulation of hurricane

                mitigation strategies for use by federal,      state and local

                relief agencies and the formulation of hazard mitigation

                policies for both future development and post-hurricane

                redevelopment.

                                        REGION OF STUDY

                The Apalachee region consists of nine counties, which include

                Calhoun, Franklin, Gadsden, Gulf, Jackson, Jefferson, Leon,

                Liberty, and Wakulla County. County populations range from

                urbanized Leon County with over one hundred thousand people to

                Liberty County with approximately 5,000 people. Three of these

                counties, Franklin, Gulf, and Wakulla, have a high percentage

                of their population living in high risk regions.         Coastal

                development in the Apalachee region should continue at a

                relatively slow pace, however, the occurrence of a major storm

                may be catastrophic due to limited financial resources of the

                coastal communities, and their non-diversified economic system

                that relies on delicate aquatic ecosystems that a hurricane can

                destroy.

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                                    SECTION 1.
                              RESPONSE/RECOVERY PLAN:
    I            ALLOCATION OF POST-HURRICANE RESOURCE ASSISTANCE
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                                  Disaster Relief Programs

             Disaster recovery funds may be provided by any combination of

             local, state and federal programs. The type of assistance

             available depends on the severity of the damage. Local governments

             are responsible for the immediate post- storm damage assessments.

             These assessments are channeled to designated state and federal

             agencies who furnish the bulk of the relief funds through various

             programs and grants. This section of the report examines the

             federal, state and local recovery programs available to hurricane

             damaged areas, who qualifies, and how to obtain the assistance.

             A. Federal Programs

                Most communities in the Apalachee region lack the financial

                resources to independently recover from a major hurricane.

                Disadvantaged localities rely on the extensive funding Federal

                assistance programs may provide. These finances aid in the

                emergency relief period immediately after the storm, the short

                range restoration period and the long range reconstruction

                period,  which continues until the region has completely

                recovered. (See Appendix A)

                In the past, Federal assistance funds were distributed in an

                unconditioned manner. Property owners could use the funds to

                rebuild without taking into account hazard mitigation, leaving

                their structures vulnerable to recurring damage.         Federal

                                             7

                 programs now condition their funding upon the meeting of

                 minimum building requirements by communities and property

                 owners.

                 Federal disaster relief begins once an area is under the

                 President's disaster declaration. The following section details

                 the various Federal Agencies and the functions they perform

                 under post storm disaster conditions.

                 1. Federal Emergency Management Agency (FEMA)
                    (Federal Program Administration)

                    Created under the Disaster Relief Act of 1974, FEMA is

                    designated as the coordinating agency of the various Federal

                    assistance programs. If a storm damaged region is under

                    disaster declaration by the President, FEMA is responsible

                    for processing damage reports and assigning the appropriate

                    federal agency to administer to the specific needs of each

                    locality.

                    The following list categorizes the basic assistance needs

                    that may be provided by one of FEMA's disaster relief

                    programs.

                    I. Emergency Assistance:

                       A. Emergency mass care (medical care, shelter, food, water);

                       B. Clearance of debris;

                       C. Emergency protective measures (search and rescue,

                          demolition of unsafe structures);

                     D. Emergency   r e p a i r sto essential u t i 11 t i e sa n d

                        facilities;

                     E. Emergency communications;

                     F. Administrative support.

                 II. Major Disaster Assistance

                     A. Individual Assistance:

                        1. Temporary housing (accommodations for up to one

                            year, minimal repairs, mortgage or rent payments

                            for up to one year);

                        2.  Unemployment insurance for up to one year (if

                            individual is not covered by state insurance);

                        3.  Individual family grants (up to $5,000 for

                            essential needs);

                        4.  Food coupons;

                        5.  Legal services;

                        6.  Crisis counseling;

                        7.  Small Business Administration (SBA) loans;

                        8.  Tax deductions;

                        9.  Farm loans;

                        10. V.A. and F.H.A. loan refinancing.

                     B. Community Assistance:

                        1. Repair and restoration of public facilities;

                        2.  Debris removal;

                        3.  Community disaster loans to cover lost revenues;

                        4.  Emergency communications;

                        5.  Emergency public transportation;

                        6.  Fire suppression grants, timber removal.

                                            9

                 2. Small Business Administration
                    TSmall Business Assistance)
                    (Economic Injury Disaster Loan & Home Disaster Loan)

                    Small businesses can apply for loans of up to $500,000 from

                    the Small Businesses Administration (SBA) to return them to

                    pre disaster conditions. The interest rate charged on these

                    loans depends upon the applicant's ability to obtain credit

                    elsewhere. Those businesses unable to obtain credit

                    elsewhere are charged 4%, those able are charged 8% or the

                    going market rate, whichever is less. If in a flood hazard

                    area, the business must have flood insurance to qualify.

                    SBA also offers Home Disaster Loans and Economic Injury

                    Loans. Home Disaster Loans are alloc ated to homeowners or

                    renters to replace destroyed personal property. Economic

                    Injury Disaster loans are working capital loans distributed

                    to small businesses and agricultural cooperatives to assist

                    them through the post disaster recovery period.

                3.  U.S. Army Corps of Engineers (COE)
                    (Structural Assi@-tance)

                    The Corps of Engineers will generally perform structural

                    modification tasks which include; flood fighting and rescue

                    operations;  emergency repair and restoration of flood

                    control works threatened, damaged, or destroyed by flood

                    waters; emergency work including repair and restoration of

                    any completed federally authorized hurricane, flood or shore

                    protection project threatened or damaged by storm activity;

                                              10

                   construction projects to remove debris, and clear channels

                   in the interest of flood control and emergency bank

                   protection works to prevent flood damage to highways,

                   bridges and public works.

                4. U.S. Department of Agriculture (DOA)
                   (Agricultural Assistance Administration)

                   The Department of Agriculture provides several post-disaster

                   assistance programs through its various branches.         The

                   following section matches the programs available through DOA

                   with the appropriate branch.

                   a. Farmers Home Administration
                      (Agricultural Loans)

                      This branch of DOA provides insured loans to farmers,

                      ranchers and aquaculture operators to return them to near

                      pre-disaster conditions. Loans are allocated to: restore

                      farm supplies; enable the farmer to return to their

                      conventional credit by allocating up to three years worth

                      of operating expenses;and refinance disaster debts and

                      finance adjustments in the applicant's operation.

                      The Farmers Home Administration also provides Community

                      Facility Loans to Indian tribes, rural residents and

                      rural communities to improve services to victims cut off

                      as a result of a major storm.

                    b. Agricultural Stabiliz,ation and Conservation Services
                        (Livestock and Farmland Rehabilitation)

                       This program, administered through DOA, assists in the

                       maintenance of the applicant's livestock through

                       purchases of livestock feed. Funds are limited to 50% of

                       the purchased feed.

                       This program also assists farmers in performing emergency

                       conservation measu res to control wind erosion on crop

                       areas, and to rehabilitate storm damaged farmlands.

                    a. Food and Nutrition Service
                       (Food and Food Stamps)

                       DOA will supply emergency food and food stamps for those

                       applicants who have had their primary means by which to

                       obtain food severed as a result of a storm.

                5. Department of Education
                    TRepai-r -and-op,eration of Public Schools)

                    DOE is responsible for allocating funds for the

                    reconstruction, restoration and operation of public school

                    facilities, in the event of an emergency.

                6. Appropriate Bar Associations
                    (Legal Assistance)

                    Different federal and state agencies through the Young

                                             12

                   Lawyers Division and the American Bar Association will

                   provide low income disaster victims with free legal

                   assistance. Provisions include the replacement of legal

                   documents, title transfers, contract disputes, will probates

                   and insurance problems.

                   Internal Revenue Service
                   (Tax Assistance)

                   The Internal Revenue Service will provide tax information

                   and education to any tax paying disaster victim. Services

                   include tax advice and guidance, rule notification and tax

                   return assistance.

                   Federal Highway Administration
                   (Highway Repair)

                   The Federal Highway Administration allocates funds to repair

                   highways   on the federal system, forest highways, forest

                   development roads and trails, parkways, public land

                   highways, public land development roads and trails and

                   indian reservation roads.

                   Department of Housing and Urban Development (HUD)
                   (Communi-ty @i-sslstance & Mobile Home Loans)

                   Through this agency's office of Community Planning and

                   Development, a region can apply for a Community Development

                   Block Grant. A block grant can assist in certain

                                              13

                    construction of public works facilities, clearance, housing

                    rehabilitation, code enforcement, relocation payments and

                    assistance, administrative expenses, economic development

                    and completion of urban renewal projects.

                    Also, through this agency any prospective mobile home buyer

                    may be allocated an insured loan. This loan makes it easier

                    for those who are homeless as a   result of a hurricane to

                    finance a permanent manufactured residence.

                10. Federal Insurance Administration
                    Tsubsidized Flood Insurance)

                    The Federal Insurance Administration provides low cost flood

                    insurance in return for community participation in the

                    National Flood Insurance Program (NFIP). The goals of the

                    NFIP are accomplished in two stages. First is the emergency

                    phase, a temporary step toward the regular intents of the

                    program. During this phase a flood hazard boundary

                    map(FHBM) is drafted, delineating the basic flood hazard

                    regions of a city or county. Local governments are required

                    to enforce building restrictions  based upon the flood risk

                    of the proposed project as depicted by the FHBM's. During

                    this phase subsidized insurance offers $35,000 for single

                    family homes and $100,000 for all other types of structures.

                    When a community enter.s the final, or regular stage of the

                    program, the requirements become specific. Engineers sketch

                                              14

                    a Flood Insurance Rate Map (FIRM) which details the threat

                    each area has of being inundated during the calculated 100-

                    year flood. Minimum    building requirements are now enacted

                    based on the localities relation to the 100-year flood

                    plain. If the region abides by the program's minimum

                    requirements, total recompensation, or relocation may

                    be available in the event of a hurricane related flood.

                    Unlike the flood hazard boundary map which details only

                    special risk zones, the flood insurance rate map has several

                    designations that a         community's authorities must

                    familiarize themselves with. The following list includes

                    FIRM zone classifications with attached definitions.

                    ZONE                        DEFINITION

                    A         Areas of 100-year flood;      base flood elevation

                              and flood hazard factors not yet determined

                    AO        Areas of 100-year shallow flooding where depths

                              are between one and three feet, average depths

                              are shown,    but no flood hazard factors are

                              determined

                    AH        Areas of 100-year shallow flooding between one

                              and three feet; base flood elevations are shown

                              but no flood hazard factors are determined

                    Al-A30    Areas of 100-year flood; base flood elevations

                              and flood hazard factors determined

                               A99             A r e a s   o f    1 0 0 - y e a r    f lood to be protected -by

                                               flood protection system under construction; base

                                               flood elevation and flood hazard factors not

                                               yet determined

                               B               Areas between limits of 100-year flood and 500-year

                                               f 1 o o d     or certain areas subject to 100-year

                                               flooding with average depths less than one foot or

                                               where contributing drainage area is less than one

                                               square mile or areas protected by levees from

                                               the base flood

                               C               Areas of minimal flooding

                               D               Areas of undetermined, but possible flood

                                               hazards

                               V               Areas of 100-year coastal flooding with velocity

                                                w a v e      a c t i o n             b a s e     f 1 oo d       e 1 e v a t i o n s

                                               and flood hazard determining factors not

                                               determined

                               V1-V30          Areas       of     1 0 0 - y e a r    coastal          f lood       with        wave

                                               action;        base flood elevations and flood hazard

                                               factors determined.

                               Community participation in the NFIP is not mandatory.

                               Federal funds, however, are usually conditioned on an area's

                               involvement in the program. Local leaders must develop

                               strategies           and techniques to encourage their region's

                               residents to support the program. Participation not only

                               assures community post-disaster assistance,                                   but in abiding

                                                                            16

                    by FIA's minimum standards a community can effectively

                    reduce damage in the event of a storm related flood.

                    In order for communities in the Apalachee region who are in

                    the program to continue to qualify for assistance, NFIP

                    REGULATIONS section 60.3(b) must be met. This section lists

                    requirements for participating municipalities based on their

                    location in relation to flood hazards.

                    REQUIREMENTS FOR COMMUNITIES IN REGULAR PROGRAM BUT NO

                    FLOODWAY OR COASTAL HIGH HAZARD IDENTIFIED

                    A. Require development permit:

                       1. For all new construction, or substantial improvement

                          including placement of prefabricated buildings and

                          mobile homes in the floodplain;

                       2. For f ill,  excavation,    paving,  dredging,    grading,

                          mining or drilling operations that could affect the

                          flood plain or stream channel.

                    B. Review permit applications to determine whether proposed

                       building sites will be reasonably safe from flooding. If

                       in a flood plain require:

                       1. All proposed construct ion/development (including

                          placement    of prefabricated buildings and mobile

                          homes) be designed (or modified) and adequately

                          anchored to prevent flotation, collapse, or lateral

                          movement.

                                                17

                       2. Use flood resistant materials and utility equipment.

                       3. Use construction methods which minimize flood damage.

                    C. Review subdivision proposals and other proposed new

                       development to determine whether the proposals will be

                       reasonably safe from flooding.      If in a f lood plain

                       require:

                       1. All proposals minimize flood damage;

                       2. All public utilities and facilities are constructed to

                          minimize or eliminate flood damage;

                       3. Adequate drainage is provided;

                       4. Base Flood elevation data for all proposals greater

                          than 50 lots or five acres.

                    D. Review construction /development proposals to determine

                       whether new and     replacement water    supply systems,

                       sanitary sewage systems or on site disposal systems will

                       be reasonably safe from flooding. If in a flood plain

                       require:

                       1. All systems be designed to minimize or eliminate

                          infiltration of floodwaters;

                       2. Sewage and disposal systems be designed to minimize or

                          eliminate discharges or contamination from systems

                          into flood waters;

                       3. Disposal systems are located to avoid impairment to

                          them.

                    E. Review construction /development proposals to assure other

                       State/Federal permits have been obtained.

                  F. Elevation requirements:

                        1. In Al_A30 Zones and AH Zones:

                           a.  Residential - New and substantial improvement-

                               elevate lowest floor to or above BFE unless an

                               exception on basements is granted to a community by

                               FIA.

                           b.  Non-residential - New and substantial improvements

                               - elevate to or above base flood elevation(BFE).

                               Floodproofing is an alternative for these

                               structures. However, for     insurance purposes, the

                               structure should be floodproofed a minimum of one

                               foot above the BFE. The insurance agent is required

                               to subtract one foot to determine the elevation to

                               be used in computing premiums. Also, a registered

                               professional engineer or architect must certify

                               that floodproofing methods are adequate.

                        2. In  AO zones:

                           a.  Residential - Elevate lowest floor to or above the

                               highest adjacent grade plus the indicated depth of

                               flooding or to or above the highest adjacent grade

                               plus two feet if no depth is indicated.

                           b.  Non-Residential - elevate or floodproof to or above

                               the highest adjacent grade plus the indicated depth

                               of flooding or to the highest adjacent grade plus

                               two f eet if no depth is indicated. See above, re:

                               one foot requirement,        r e  floodproofing and

                               insurance purposes and engineering/architect

                                                  19

                                              certification.

                                    3. In A Zones:

                                         If Base flood elevation data is not provided by the

                                         NFIP, obtain, review and reasonably utilize any BFE

                                         data available from other sources as basis for

                                         elevating residential structures to or above BFE, and

                                         elevating or floodproofing non-residential structures

                                         to or above BFE.

                              G. Mobile Homes - Require:

                                    1. In       A    z o n e s ,     a p p 1 y     m o b i 1 e      h o m e     anchoring

                                         specifications:

                                    2.   In Al-A30 Zones, for new or substantially improved

                                         mobile home parks or subdivisions and for mobile homes

                                         n o t   p 1 a c e d    in    e x i s t i n g    mobile         home       p a r k s    or

                                         subdivisions:

                                         a. Stands or lots are elevated to or above BFE;

                                         b. Adequate access for hauler and drainage be provided.

                                         c. If pilings'are used for elevation, construction

                                             standards for pilings are met.

                              H. Obtain and maintain records of elevation floodproofing

                                    levels for new construction and substantial improvements.

                              I.    Notify adjacent communities, DCA, and FEMA prior to any

                                    alteration or relocation of watercourse.

                              J.    Until regulatory floodway is designated, no use may

                                    increase the BFE more than one foot.

                                                                          20

                   REQUIREMENTS FOR COMMUNITIES IN    REGULAR PROGRAM, FLOODWAY
                   HAS BEEN IDENTIFIED (FEMA REGULATIONS, SECTION    60.3(C)(D))

                   A. When data have been provided by NFIP:

                       1. Designate regulatory floodway capable of carrying base

                          flood waters without increasing the BFE more than one

                          foot;

                       2. Prohibit any encroachment in the regulatory floodway

                          which would cause any increase in the base flood

                          level;

                       3. Prohibit placement of mobile homes in the adopted

                          regulatory floodway except in existing mobile home

                          parks or subdivisions.

                   REQUIREMENTS FOR COMMUNITIES IN THE    REGULAR PROGRAM WHERE
                   COASTAL HIGH HAZARD AREAS (V ZONES) HAVE BEEN DESIGNATED.
                   (FEMA REGULATIONS, SECTION 60.3(C)(E))
                   For Coastal High H8zard Areas: Zones V1-V30

                   A. Require that all new construction and substantial

                       improvements:

                       1. Are elevated and secured to anchored pilings so that

                          lowest portion of lowest structural member is at or

                          above base flood elevation;

                       2. Are certified by engineer /architect that structure is

                          secured to anchored pilings to withstand velocity

                          waters and wave wash;

                       3. Have  spaces  below lowest floor constructed with

                          breakaway walls or left open. Please note: Breakaway

                                              21

                         walls are still a-llowed,    but their use may mean

                         additional premium   cost.

                      4. Is landward of mean high tide.

                   B. Prohibit use of fill for structural support

                   C. Prohibit mobile homes, except in -existing mobile home

                      parks and existing mobile home subdivisions

                   D. Prohibit alteration of sand dunes and mangrove stands

                      which would increase potential flood damage.

                        Base Flood Elevation and Floodway Map Sources

                   The BFE maps and floodway maps plot flood hazard risk for

                   each county. In order to enforce NFIP's regulations,        a

                   community must be aware of the risks each section is subject

                   to. The following list details the various sources from

                   which BFE information may be available.

                   1. Corps of Engineers District Office

                          Jacksonville(904)791-1100

                          Mobile(205)694-3850

                   2. Soil Conservation Service State Office

                          Gainesville (904)377-8732

                   3.  U.S. Geological Survey District Office

                          Tallahassee (904)386-7145

                                             22

                   4. Water Management Districts(WMD)

                          Northwest Florida WMD -Havana-(904) 487-1770

                          Suwannee River WMD - Live Oak - (904)362-1001

                   5. Apalachee Regional Planning Council

                          Tallahasse(904)575-5850

                          Blountstown(904)674-4571

                   6.  FEMA, Insurance and Mitigation Division

                          Atlanta(404)881-2391

                   The Flood Insurance Program is the most extensive federal

                   assistance program. The Federal Government, however, does

                   not supply all of the repair and reconstruction funds under

                   this act. The program's break down in the State of Florida

                   is 75% Federal share,    10% State of Florida,   and local

                   municipalities pick up 15% of the repair costs.

               11. Emergency Conservation Program
                   (-i-mergency Farmer's Assistance)

                   The Emergency Conservation Program is designed to assist

                   farmers and agricultural endeavors. Funds can be obtained

                   for clearing farmland of fallen trees and debris, fence

                   repair and cropland rehabilitation.

               12. Department of Labor
                    U n e m p 1 "YY-m e-ii-t mpensation)

                   The Disaster Unemployment Assistance Program provides job

                   placement and compensation for one year for those out of

                   work as a result of storm damage. The program is usually

                                             23

                    channeled from the Department of Labor through the State

                    Employment Security Agency.

                13. Individual Family Grants
                    (Family Expenses)

                    This program provides     monetary    contributions of up to

                    $5,000 to those that have demonstrated an inability to repay

                    a SBA loan. The fund   s under th  is program are generally

                    utilized to pay for medical expenses, transportation costs,

                    home repair and other vital necessities that the individual

                    cannot provide.

                14. Charitable Relief Programs
                    (Emergency Provisions)

                    In areas in desperate  need of assistance, charitable relief

                    programs such as the Red Cross,Salvation Army, and Goodwill

                    Industries will set up local camps and aid centers where

                    basic necessitiessuch as food, shelter and medical

                    supplies are provided.

                    The Red Cross provides the most extensive charitable relief.

                    The allocated assistance is broken down as follows;

                    A. Emergency mass care assistance including;         Food f or

                       disaster victims and emergency workers, temporary

                       shelters, medical and nursing aid, clothing and

                       blood products;

                    B. Emergency assistance on individual family basis

                                               24

                       including; welfare information services,

                       information concerning government disaster assistance

                       programs and other emergency assistance provisions such

                       as food,   clothing,   rent,  furniture,    transportation,

                       medicine and home repair.

                    C. Aid for families who do not qualify for government

                       programs which include; casework services, food and

                       clothing, home repair, furnishings, medical care and

                       personal occupational equipment.

    _4                                         25

              B. State Programs

                 In Florida the coordinating agency for disaster relief programs

                 is the Divis ion of Emergency Management, within the Department

                 of Community Affairs. DEM, like FEMA at the Federal level,

                 assigns the appropriate state agency to administer to any

                 municipality or county under disaster declaration.

                 The Division of Emergency Management is required to design a

                 State Comprehensive Emergency Management Plan directed at civil

                 defense. This program must be consistent with Federal

                 g u i d e 1 i n e sand policies. DEM must   also review Local

                 Comprehensive Emergency Management     plans for continuity with

                 State and Regional plans.

                 The following section details the various Florida agencies

                 involved in recovery and services they provide in the event of

                 a hurricane:

                 1. Florida National Guard
                    TEmergency Functions)

                    The Florida National Guard are ordered into an area by the

                    Governor to perform emergency functions such as debris

                    clearance, anti-looting patrols, security, escort, traffic

                    control, water provision, aviation monitoring and medical

                    service provision.

                                               26

                2. Depar ment of Natural Resources
                   (Damage Assessment & Structural Repair)

                   The programs available through The Department of Natural

                   Resources range from local damage assessments to structural

                   mitigation measures. During the storm, the DNR can provide

                   teams of sandbaggers to deter storm waters. After the storm,

                   funds may be provided to restore coastal protection devices

                   to their pre-storm condition in compliance with Florida

                   Statutes.

                   After the storm of 1985, DNR worked alongside the National

                   Marine Fisheries Service providing recovery assistance for

                   the oyster beds of Franklin County. Seedling oysters were

                   quickly reestablished in Apalachicola Bay, in hopes the

                   oyster industry would not suffer substantial losses.

                3. Department of Environmental Regulation
                   @_Emergency Permitting)

                   The Department of Environmental Regulation will issue "on

                   the spot" permits for emergency dredge and fill operations

                   that involve potential loss of life and property.

                4. Department of Transportation
                   (Road Repai@_) '

                   The Florida Department of Transportation allocates extensive

                   funding to roads washed out as a result of a hurricane.

                                              27

                 5. De2artment of Health and Rehabilitative Services
                    TIndividual Assistance)

                    The Florida Department of Health and Rehabilitative Services

                    provides food stamps, funds for rent, utilities and mortgage

                    payments. A section on individual assistance is contained in

                    a later section.

                 6. Department of Labor and Employment Security
                    (Unemp-f-oyme-@-t 'Assistance)

                    The Florida Department of Labor and Employment Security

                    assists those out of work as a result of a storm. Depending

                    on the situation, money or employment may be provided.

                 7. Department of Community Affairs
                    '5isaster Relief Act
                    (Infrastructure Restoration)

                    Local governments within a disaster stricken area may be

                    allocated funds for the restoration and replacement of

                    infrastructure. The Department of Community Affairs is in

                    charge of administering the program.      Funds are shared

                    between state and federal governments, the state allocates

                    25% of the assistance funds, and the federal government

                    allocates 75%.

                                              28

                                    Citizens Assistance Centers

                    Provisions from the agencies listed in subsections 4 through

                    7 are available through Citizen Assistance Center's,     set up

                    in storm damaged localities. The Department of Emergency

                    Management directs each state agency to provide the

                    specifies a region needs to recover from storm damage.

              C. Local Programs

                 In the event of damage from a hurricane, the local government

                 is the first source the individual looks toward for assistance.

                 Each municipality must be able to rapidly and efficiently

                 allocate Federal and State funds to those in need. In order to

                 ensure this,   counties in Florida are required to design a

                 Comprehensive Emergency Management Plan, which is a detailed

                 description of what steps will be taken during a crisis. The

                 Hazard Mitigation Annex of the plan contains guidelines set

                 forth by the Department of Emergency Management that local

                 governments are to follow. These guidelines require local

                 governments to approach hazard mitigation at three levels;

                 issue and policy development; ongoing hazard mitigation

                 studies; and site specific hazard mitigation studies.

                                                29

                                       FIELD ASSISTANCE

             A. Disaster Field offices (DFO)

                 The Disaster Field Office is set up as a coordination station

                 for all state and federal assistance programs within counties

                 under the President's disaster declaration. The offices are run

                 and staffed by both a FEMA and a state appointed official. The

                 function of these offices is the collection and processing of

                 damage survey reports, and requests for individual assistance

                 and small business loans. Damage survey reports are monetary

                 damage estimates to specific buildings and facilities compiled

                 by assessment teams from FEMA, the State and the affected local

                 government. These reports and applications are evaluated and a

                 decision on the amount of funding to be obligated to each

                 locality is made.

              B. Disaster Application Centers (DAC)

                 Disaster application centers are set up in counties under the

                 President's disaster declaration after the disaster field

                 office* have bccn votaDiluhcde 5taff in tne3e center3 will

                 assist affected individuals in filling out the proper

                 applications. The applications are than sent to the disaster

                 field office for processing.

                                              31

              C. Civil Defense Directors Duties

                 Federal and State authorities who set up each county's disaster

                 application center need to designate a si.te which contains

                 adequate communication and administrative capabilities. The

                 Civil Defense Director for each county has the responsibility

                 of assuring that an appropriate site has been assigned as

                 depicted in their Emergency Management Plan. Table 1 lists the

                 Civil Defense Director of each county in the Apalachee region

                 accompanied by the corresponding office address and telephone

                 number.

              D. Site Determination

                 Several criteria are utilized in determining the appropriate

                 site for each county's application centers and field office.

                 These sites must be pre-determined to be able to withstand

                 hurricane induced damage, be in a flood free zone, have easy

                 access and ample parking, be under public ownership and have

                 adequate emergency facilities. More than one designation has to

                 be assigned for the Disaster Application Center, unlike the

                 single location for the DFO per county. The DAC must be

                 accessible for both government officials and the general public

                 in need, while the DFO has to be within close proximity of a

                 centralized government facility. Table 2 lists the recommended

                 county sites based on the previous criteria for disaster field

                 offices and application centers in the Apalachee Region.

                                              32

                                                                          TABLE i

                                                      CIVIL DEFENSE DIRECTORS IN THE APALACHEE REGION

                          COUNTY                      NAME                            LOCATION                               TELEPHONE

                          CALHOUN                     NATHAN GOODMAN                  BASEMENT OF CALHOUN                    674-8075

                                                                                      COUNTY COURTHOUSE

                          FRANKLIN                    EUGENE ELLER                    FRANKLIN COUNTY COURTHOUSE             653-8977

                                                                                      APALACHICOLA

                          GADSDEN                     CHARLIE BETTS                   GADSDEN COUNTY COURTHOUSE              674-8075

                                                                                      SOUTH MADISON ST.

                                                                                      QUINCY

                          GULF                        LARRY WELLS                     GULF COUNTY COURTHOUSE                 227-1735

                                                                                      PORT ST. JOE

                          JACKSON                     JAMES MAYDER                    JACKSON COUNTY COURTHOUSE              526-4500

                                                                                      PELT ST. MARIANNA

                          JEFFERSON                   BOB KNECHT                      JEFFERSON COUNTY COURTHOUSE            997-5762

                                                                                      140 WEST WASHINGTON

                                                                                      MONTICELLO

                          LEON                        MY ATKINSON                     LEON COUNTY COURTHOUSE                 488-5921

                                                                                      TALLAHASSEE

                          LIBERTY                     ART PREACHER                    CIVIL DEFENSE AND PLANNING OFFICE      643-2339

                                                                                      RIVER STREET

                                                                                      BRISTOL

                          WAXULLA                     ERIC HINDLE                     WAKULLA COUNTY COURTHOUSE              926-5424

                                                                                      CRAWFORDVILLE

                                                                                33

                                                                                      TABLE 2

                                                                              POTENTIAL LOCATIONS FOR

                                                                              DISASTER FIELD OFFICES

                                                                      FOR THE COUNTIES OF THE APALACHEE REGION

                        COUNTY             LOCATION                           DESIGNATION      COUNTY        LOCATION                              DESIGNATION

                        CALHOUN        1.  CALHOUN COUNTY COURTHOUSE          DFD/DAC     -    JACKSON     1. HRS CENTER                           DFO/DAC

                                           BLOUNTSTOWN                                    -                  401 EAST CLINTON ST.

                                                                                          -                  MARIANNA

                        FRANKLIN       1.  CARRABELLE CITY HALL               DFOIDAC     -

                                           CARRABELLE                                     -    JEFFERSON 1.  JEFFERSON COUNTY COURTHOUSE           DFO/DAC

                                       2.  EASTPOINT ARMORY                   DFO/DAC     -                  140 WEST WASHINGTON

                                           EASTPOINT                                      -                  MONTICELLO

                                       3.  FRANKLIN COUNTY COURTHOUSE         DAC         -

                                           APALACHICOLA                                   -    LEON        i. CAPITAL OUTLET CENTER                DAC/DFO

                                                                                          -                  WEST TENNESSEE STREET

                        GADSDEN        1.  GADSDEN COUNTY COURTHOUSE          DFO/DAC     -                  TALLAHASSEE

                                           SOUTH MADISON ST.                              -                2. TALLAHASSEE RECREATIONAL CENTER      DAC

                                           QUINCY                                         -                  JACKSON BLUFF ROAD

                                                                                          -                  TALLAHASSEE

                        GULF           1.  PORT ST. JOE FIRE HOUSE            DFO/DAC     -

                                           404 WILLIAMS AVE                               -    LIBERTY      1. LIBERTY C OUN TY COURTHOUSE         DAC/DFO

                                           PT. ST. JOE                                    -                    BRISTOL

                                       2.  COMMUNITY CENTER                   DAC         -

                                           WEWAHITCHKA                                    -    WAKULLA      1. LIVESTOCK PAVILLION                 DAC/DFO

                                                                                          -                    DOWNTOWN CRAWFORDVILLE

                                                                                          34

                                           ANALYSIS

                It must be noted that the population of each county in the

                Apalac hee region is relatively small compared to the rest of

                the State, thus many Counties use the same facility for both

                the DFO and DAC. Many of the proposed facilities have not been

                used in emergency situations,   therefore performance standards

                have yet to be determined. The Franklin County Courthouse was

                sandbagged during hurricane Kate, therefore it would only be

                available during a low intensity storm. In the event of a

                hurricane,   the location of centers will be reassessed by

                government officials, who may decide to change location.

                                    Post DAC/DFO Assistance

                When the disaster assistance centers are gone, mobile service

                centers are available for assistance two days a week. Hot lines

                are also open up to 60 days af ter the DACIS close down.

                Operators will accept and process requests for aid.

                                             35

                                          TEMPORARY HOU3ING

                 FEMA provides accommodations for those disaster victim        s   left

                 homeless as a result of a storm when no housing facilities are

                 available from county agencies. Depending upon the situation,

                 four types of temporary homes are available; transient

                 accommodations,     government owned- housing,      private rental

                 housing, and mobile home-s. The following section examines the

                 various temporary housing programs available after a hurricane,

                 how to get that assistance, and the potential demand placed on

                 temporary housing programs based on selected storm scenarios

                 from Phase 1 of the Apalachee Region Hurricane Loss Study.An

                 analysis of individual county recommendations based on

                 potential temporary housing needs is also contained in this

                 section.

                 A. Applicant Assistance

                     Applications for temporary housing are taken at disaster

                     application centers. Local governments and the Division of

                     Emergency Management will provide staff assistance to          aid

                     in the application process. The victims first step toward

                     receiving temporary housing involves a pre-screening process

                     to determine the victims eligibility for an application. If

                     deemed eligible, the victim is sent to an interviewer who

                     e x p 1 a i n sa vai 1 ab 1 e pr ogra ms before processing    the

                     application. The application is reviewed and a determination

                                                 37

                    is made using the followi.ng criteria:

                    1. Is the damaged housing unit the primary residence of the

                       applicant?;

                    2. Was the damage a result of the disaster7;

                    3. Does the applicant have any other available resources

                       such as insurance or another home that will provide him

                       with temporary housing.

              B. Provisions to Eligible Applicants

                 Once an applicant has been approved for one of the temporary

                 housing programs he is informed of the following information;

                 his eligibility; a recommended dwelling unit based on size and

                 price; the duration of assistance, and his responsibilities

                 within that time frame which includes: an acceptance of the

                 first reasonable offer; an expectance that he properly cares

                 for the unit; and an expectance that the applicant will attempt

                 to find permanent residence during his stay in the temporary

                 unit. Once an applicant's period of assistance is over he may

                 reapply for continued temporary housing.

                 FEMA allocates the bulk of federal housing units. However,

                 housing site allocation, general service provisions and program

                 coordination is up to local governments. Municipalities should

                 interact with FEMA prior to the occurrence of the disaster to

                 insure post-disaster housing operations are efficiently run.

                                              38

                 Inadequately tied down housing units and poorly constructed

                 manufactured homes are common in the Apalachee Region. These

                 homes are not built to withstand hurricane winds and

                 floodwaters thus;   even though the region is not heavily

                 populated there is a definite need for a temporary housing

                 program in the event of a major storm, as the following section

                 will discuss

             C.  Methodology

                 Temporary housing needs are determined by using data from the

                 Apalachee Region Hurricane Loss Study (Phase 1). The loss study

                 depicted 23 hurricane scenarios based on simulated hurricane

                 tracks from the National Weather Service and based the quantity

                 of structural damage on them. The scenarios varied in both

                 landfall site and intensity. Five hurricanes were selected from

                 the 23 scenarios simulated in the first loss study.         The

                 intention was to use simulations of all five categories on the

                 Saffir Simpson scale coming closest to a direct hit on each

                 individual county. Housing needs are than determined based on

                 the severity of each storm simulation in relation to location

                 of landfall. The selected scenarios and their landfall sites

                 are contained in table 3 and map 1 , appendix D   examines the

                 Saffir Simpson Scale, and tables 4 through 19 determine the

                 demand for temporary housing in the Apalachee region based on

                 these scenarios.

                                              39

                                                         TABLE 3

                                                  STORM SCENARIO  USEDTN

                           INDIVIDUAL ASSISTANCE AND TEMPORARY HOUSING DETERMINATIONS

                                                                                              Direction
               Storm Scenario               CategoEx         Landfall Location           Hurricane Having

                          A                       1          St.  Marks                              NW
                          B                       2          St.  Marks                              N
                          C                       3          St.  Marks                              N

                          D                       3          St.  Teresa                             (NW)
                          R                       3          St.  Teresa                             (NE)
                          F                       3          St.  Teresa                             (N)

                          G                       2          St.  George/Carrabelle                  N
                          H                       I          St.  George/Carrabelle                  N
                          1                       3          St.  George Carrabelle                  (N)
                          1                       5          St.  George/Carrabelle                  N
                          K                       3          St.  George/Carrabelle                  (NW)

                          L                       3          St.  George/Apalachicola                (N)
                          M                       2          St.  George/Apalachicola                NW
                          N                       3          St.  George/Apalachicola                (NW)
                          0                       4          St.  George/Apalachicola                N
                          P                       I          St.  George/Apalachicola                NE
                          Q                       4          Cape San Blas                           NE

                          R                       3          Mexico Beach                            N
                          a                       3          Mexico Beach                            NE
                          T                       4          Mexico Beach                            N                       I
                          U                       5          Mexico Beach                            N

                          v                       I          offshore                        Paralleling
                                                  1          offshore                        Paralleling

                V    W do not make landfall but parallel'the shoreline.

                                                             40

                     A L A 8 A M A                                 MAP 1
                    -----------------

                                                        HURRICANE SCENARIO PATHS

                         JACKSON

                                                       E    0     R    0
                                                                                 A
                                                6@6s -EN

                                                                  LEON
                           CALHOUN
                                                                0
                                                                   ,sholoof JEFFiRSON

                                       LIBERTY
                                                         WAKULLA

                         GULF

                                                                    co
                                          FRANKLIN
                                                 1"i      I   i
                         Pore so. jx@\

                                         locillcole IL
                                                                                            A

              N--
                                                                                         w
                        P

                              /*
                    T
                      U

               E/
                                                -G
                                     L                                             N

                                         SPLASH 11
                           SELECTED HURRICANE                       TRACKS

                                                   41

                                                                                     TABLE 4

                                                                                  CALHOUN COUNTY

                                                                       PROJECTED TEMPORARY HOUSING NEEDS

                                                                          BASED ON DAMAGE GREATER THAN 25%

                             STORM SCENARIO    SINGLE FAMILY       MULTI FAMILY    MOBILE HOME       TOTAL NUMBER        HABITABLE SEASONAL

                                                                                                   OF RENTAL UNITS             UNITS

                                    H                   0                 0              0                658                   264

                                    M                   0                 0              0                658                   264

                                    R                   0                 0              0                658                   264

                                    T                   0                 0              0                658                   264

                                    U                   0                 0            293                633                   234

                                                                                       TABLE 5

                                                                                    CALHOUN COUNTY

                                                                           PROJECTED TEMPORARY HOUSING NEEDS

                                                                            BASED ON DAMAGE GREATER THAN 50%

                            STORM SCENARIO       SINGLE FAMILY     MULTI FAMILY     MOBILE HOMES        TOTAL KNER       HABITABLE SEASONAL

                                                                                                      OF RENTAL UNITS           UNITS

                                                        0                 0                0                 658                 264
                                    M                   0                 0                0                 658                 264
                                    R                   0                 0                0                 658                 264
                                    T                   0                 0                0                 658                 264
                                    U                   0                 0              V3                                      n4

                                                                                    42

                                                                                 TABLE 6

                                                                              FRANKLIN COUNTY

                                                                   PROJECTED  TEMPORARY HOUSING NEED

                                                                   BASED ON DAMAGE GREATER THAN 25%

                                                                                                    TOTAL MAW          HABITABLE SEASONAL            TOTAL UNITS

                      STORM SCENARIO     SINGLE FAMILY       MULTI FAMILY       MOBILE HOMES      OF RENTAL UNITS              UNITS                   REQUIRED

                              P                650                 167                261               605                    705                          0

                              M                1345                167                420               585                    670                        682

                              N                1980                170                435               385                    450                       1750

                              0                2160                215                650               305                    375                       2345

                                               2285                215                835               E95                    360                       2680

                                                                                 TABLE 7

                                                                              FRANKLIN COUNTY

                                                                       PROJECTED TEMPORARY HOUSING NEED

                                                                       BASED ON DAMAGE GREATER THAN 50%

                                                                                                    TOTAL NUMBER          HABITABLE SEASONAL         TOTAL UNITS

                       STORM  SCENARIO   SINGLE FAMILY       MULTI FAMILY      MOBILE HOMES        OF RENTAL  UNITS            UNITS                   REQUIRED

                              P                440                    0               261                 605                     705                       0

                              M                970                 10                 340                 590                     680                     207

                              N                1?80                167                435                 385                     450                     912

                                               2160                215                650                 305                     375                    2345

                                               2285                215                835                 295                     360                    2680

                                                                                      43

                                                                       TABLE 9

                                                                       GULF COUNTY

                                                               PROJEC TED TEMPORARY HOUSING NEED

                                                               BASED ON DAMAGE GREATER THAN 25%

                                                                                              TOTAL NUMBER      HABITABLE SEASONAL           TOTAL UNITS

                 STORM SCENARIO     SINGLE FAMILY       MULTI FAMILY      MOBILE HOMES      OF RENTAL WITS            WITS                     REQUIRED

                         v                 0                   0                   0               787                  45                           0

                         N                 0                   0                   0               787                  M                            0

                         S              2347                 24                    535             345                  i9o                       2371

                                         200                   6                   237             615                  370                          0

                         U              2650                 31                    943             85                    35                       3794

                                                                      TABLE 9

                                                                     GULF COUNTY

                                                               PROJECTED TEMPORARY MUSING NEED

                                                               BASED ON DAMAGE GREATER THAN 50%

                                                                                              TOTAL NUMBER      HABITABLE SEASONAL           TOTAL UNITS

                 STORM SCENARIO      SINGLE FAMILY       MULTI FAMILY      MOBILE HOMES       OF RENTAL UNITS         UNITS                   REQUIRED

                         v                  0                  0                   0               787                415                         0

                         N                  0                  0                   0               787                45                          0
                                         2347                  14                  535             350                192                       2354
                         a                200                  0                   107             690                385                         0
                         U               2400                  23                  943               57                 36                      3533

                                                                                   44

                                                                               TABLE In;
                                                                              @DSDEN COUNTY

                                                                      PROJECTED TEMPORARY HOUSING NEED

                                                                      BASED ON DAMAGE GREATER THAN 25%

                                                                                                          TOTAL NUMBER         HABITABLE SEASONAL      TOTAL UNITS

                     STORM SCENARIO       SINGLE FAMILY        MULTI FAMILY        MOBILE HOMES         IF RENTAL UNITS                UNITS            REQUIRED

                            H                   0                   0                  0                      3088                     1047                   0

                            G                   0                   0                  0                      3088                     1047                   0

                                                0                   0                  0                      3088                     1047                   0

                                                0                   0                  0                      3088                     1047                   0

                                                0                   0                1350                     2675                     980                    0

                                                                                TABLE 1.1

                                                                               GADSDEN COUNTY

                                                                    PROJECTED TEMPORARY HOUSING NEED

                                                                    BASED ON DAMAGE GREATER THAN 50%

                                                                                                    TOTAL NUMBER OF       K491TABLE SEASONAL            TOTAL UNITS

                      STORM  SCENARIO      SINGLE FAMILY       MULTI FAMILY       MOBILE MKS         RENTAL UNITS                 UNITS                  REQUIRED

                                                 0                   0                  0                 3088                    1047                        0

                             6                   0                   0                  0                 3086                    1047                        0

                             9                   0                   0                  0                 3088                    1047                        0

                                                 0                   0                  0                 3088                    1047                        0

                                                 0                   0                00                  2675                      980                       0

                                                                                        45

                                                                                  TABLE 12

                                                                                JACKSON COUNTY

                                                                     PROJECTED TEMPORARY HOUSING NEED

                                                                     BASED ON DAMAGE GREATER THAN 25%

                                                                                                       TOTAL NUMBER OF      HABITABLE SEASONAL            TOTAL UNITS

                       STORM SCENARIO       SINGLE FAMILY        MULTI FAMILY       MOBILE HOMES        RENTAL UNITS                UNITS                  REQUIRED

                               A                  0                     0                 0                  3226                   1096                       0

                               G                  0                     0                 0                  3226                   1096                       0

                               D                  0                     0                 0                  3226                   1096                       0

                               T                  0                     0                 0                  3226                   1096                       0

                               U                  0                     0              1852                  2559                   898                        0

                                                                                  TABLE 13

                                                                                JACKSON COUNTY

                                                                     PROJECTED TEMPORARY HOUSING NEED

                                                                     BASED ON DAMAGE GREATER THAN 50%

                                                                                                       TOTAL NUMBER OF     HABITABLE SEASONAL             TOTAL UNITS

                       STORM SCENARIO       SINGLE FAMILY      MULTI FAMILY        MOBILE MKS          RENTAL UNITS               UNITS                    REQUIRED

                               A                  0                     0                 0                  W6                     1096                       0

                               G                  0                     0                 0                  3U6                    1096                       0

                               D                  0                     0                 0                  W6                     1096                       0

                               T                  0                     0                 0                  3226                   1096                       0

                               U                  0                     0              1852                  2559                   898                        0

                                                                                          46

                                                                             TABLE 14

                                                                             LEON COUIR

                                                                   PROJECTED TEMPORARY HOUSING NEED

                                                                   BASED ON DAMAGE GREATER THNA 25%

                                                                                                    TOTAL NUMBER OF HABITABLE SEASONAL             TOTAL UNITS

                      STORM SCENARIO       SINGLE FAMILY     MULTI FAMILY       MOBILE 00           RENTAL UNITS             UNITS                   REQUIRED

                              p                    0               0                    0               23,803               5117                         0

                              B                    0               0                    0               23,803               5117                         0

                                                   0               0                    0               23,803               SIV                          0

                              0                    0               0                2172                23,704               4995                         0

                              J              42,000                35               2172                5,650                  925                  37,632

                                                                               TABLE 15

                                                                                LEON COUNTY

                                                                       PROJECTED TEMPORARY HOUSING NEED

                                                                       BASED ON DAMAGE GREATER THAN 50%

                                                                                                    TOTAL NUMBER OF     HABITABLE SEASONAL          TOTAL UNITS

                        STORM SCENARIO      SINGLE FAMILY       MULTI FAMILY      MOBILE HOMES       RENTAL UNITS              UNITS                  REQUIRED

                              p                    0                   0                0               23,803                  5117                      0

                              B                    0                   0                0               23,803                  51V                       0

                              C                    0                   0                0               23,803                  5117                      0

                                                   0                   0                0               23,803                  5W                        0

                                                   0                   0            V72                 23,704                  4W5                       0

                                                                                        47

                                                                              TABLE 16

                                                                            LIBERTY COUNTY

                                                                    PROJECTED TEMPORARY HOUSING NEED

                                                                    BASED ON DAMAGE GREATER THAN 25%

                                                                                                  TOTAL KlMBER OF     HABITABLE SEASONAL         TOTAL UNITS

                       STURM SCENARIO      SINGLE FAMILY      MULTI FAMILY       MOBILE HOMES       RENTAL UNITS             UNITS                 REQUIRED

                             H                   0                  0                0                 311                    281                      0

                             G                   0                  0                0                 311                    281                      0

                             L                   0                  0                0                 311                    281                      0
                             0.                  0                  0                0                 311                    281                      0

                                                 0                  0               447                243                    127                     77

                                                                              TABLE 17

                                                                             LIBERTY COUNTY

                                                                    PROJECTED TEMPORARY HOUSING NEED

                                                                    BASED ON DAMAGE GREATER THAN 50%

                                                                                                   TOTAL NUMBER OF    HABITABLE SEASONAL         TOTAL UNITS

                        STORM SCENARIO     SINGLE FAMILY      MULTI FAMILY       MOBILE HXS          RENTAL UNITS            UNITS                REQUIRED

                              H                  0                  0                  0                311                   281                      0

                              G                  0                  0                  0                311                   281                      0

                              L                  0                  0                  0                311                   281                      0

                              0                  0                  0                  0                311                   281                      0

                              1                  0                  0                385                268                   165                      0

                                                                                   4 8

                                                                              TABLE IS

                                                                            WAKULIA COUNTY

                                                                      PROJECTED TEMPORARY HOUSING NEED

                                                                      &AM ON DAMAGE GREATER THAN 25%

                                                                                                    TOTAL NUMBER OF        HABITABLE SEASONAL          TOTAL UNITS

                   STORM SCENARIO      SINGLE FAMILY         MULTI FAMILY        MOBILE HOMES          RENTAL UNITS               UNITS                 REQUIRED

                           A                  850                     0              lis                   215                       440                   310

                           B                  850                  350               820                     80                      105                  1835

                           F                    0                     0                0                   658                     il3l                       0

                                                0                     0              8W                    320                       520                      0

                                             1477                  4EO               966                     32                      45                   2796

                                                                              TABLE 19

                                                                             WAKULLA COUNTY

                                                                      PROJECTED TEMPORARY HOUSING NEED

                                                                      BASED ON DAMAGE GREATER THAN 50%

                                                                                                   TOTAL NUMBER OF        HABITABLE SEASONAL           TOTAL LNITS

                    STORM SCENARIO        SINGLE FAMILY        MULTI FAMILY       MOBILE HOMES       RENTAL UNITS               UNITS                   REQUIRED

                           A                     0                    0              lis                  520                    850                          0

                           B                    850                   0              540                   87                    120                       Im

                           F                     0                    0                 0                 658                    1131                         0

                                                 0                    0              425                  340                    560                          0

                                                 0                    0              960                  130                    234                        706

                                                                                     49

              D. Interpretation of Table's 4 Through 19

                 Determining when a house unit is uninhabitable is difficult

                 because no set percentage of damage has been established that

                 differentiates between a habitable and uninhabitable housing

                 unit. On many occasions, 20% of damage resulting from a storm

                 may be associated with critical areas of the house such as

                 bedrooms, bathrooms and the kitchen rendering it uninhabitable,

                 while a house damaged 50% by a storm may suffer damage only to

                 the garage, swimming pool and other additional fixtures that do

                 not affect the habitability of the unit. This is why two tables

                 for each County are exhibited in the demand for temporary

                 housing_ section. The first table for each co    unty deems a

                 structure uninhabitable if 25% of the unit is damaged and the

                 second table does the same if 50% of it is damaged. The

                 appropriate table depends on which set standard the reviewing

                 agency chooses to use.

                 Many of the scenarios used in the study show that f ew if any

                 housing units will be required. This is misleading because only

                 if structural damage is above 25% does the study indicate that

                 temporary homes will be required. This does not mean that

                 substantial damage   has not occurred. A County whose average

                 losses are under 25% still may suffer millions of dollars in

                 losses.

                                             50

                Tables 4 through 19 calculate potential housing demands within

                each county based on five different hurricane scenarios

                individually selected for each county.       The f irst column

                contains a letter identifier that corresponds with a hurricane

                scenario already described in the methodology part of this

                section. Total damage does not necessarily correspond to the

                intensity of the storm, due to the failure of obtaining f ive

                scenarios of varying intensity with the same landfall site, so

                a category one hurricane hitting the center of a certain county

                can create a greater demand f or temporary housing than a

                category five storm scenario, if there was no simulation of a

                category five hurricane making a direct strike on that county.

                The numbers in columns two, three and four were added together

                to obtain the total number of housing structures damaged beyond

                habitability based on the corresponding hurricane scenario.

                These columns disaggregate housing units into single family

                dwelling units, multi family dwelling units and mobile homes

                accordingly.

                The numbers in columns five and six are subtracted from the sum

                of columns two, three and four. These two columns consist of

                the amount of rental units and vacant seasonal dwelling units

                that may be available to accommodate that county's homeless in

                the event of the corresponding storm scenario.

                The number in the column titled TOTAL AVAILABLE UNITS is

                 obtained from subtracting the sum of columns five and six from

                 the sum of columns two, three and four. This is the total

                 number of outside temporary housing units that will be needed

                 in the event of the storm scenario depicte.d in column one of

                 that row.

              E. Limitations

                 The hurricane damage estimates were based on SPLASH models that

                 only consider damage caused by wind and surge. Rainfall, which

                 varies from storm to storm, causes much damage in a hurricane,

                 yet was not accounted for in the SPLASH models, thus the damage

                 figures for   inland counties are substantially lower than can

                 be expected in a real storm.

              F. Sourc-es

                 The figures in the temporary housing tables were derived from

                 the U.S. 1980 Census of Housing and Phase One of the Apalachee

                 Region Hurricane Loss Study. The number for available rental

                 units and seasonal habitable units came from the U.S. 1980

                 Census of Housing, and the damage estimates came from Phase One

                 of the Loss Study.

                                              52

             G. Individual County Analysis

                                        CALHOUN COUNTY

                Calhoun County, separated from the coast by Gulf County, is not

                susceptible to storm surge. Of the five scenarios selected for

                the County only scenario U, a category five hurricane that

                passes just to the west of the County, would cause wind damage

                greater than 25% to any residential units. This shows the

                inadequacy of the SPLASH model because a storm of this

                magnitude would still cause catastrophic damage even this far

                inward, due to the possible inundation of eastern Blountstown

                by the Apalachicola River. The assessment that no outside
                housing facilities are necessary in thi's event is misleading.

                The tables stating that scenarios R and T, 100-year storms

                whose dangerous right quadrant sweep the County, would not

                damage any housing facilities must also be analyzed with

                skeptism.

                                        Recommendation

                Although the tables show that Calhoun County has the available

                resources to meet the temporary housing needs of even the most

                catastrophic storm, a "just in case" program should be

                initiated. The most heavily populated center is in the less

                vulnerable southeastern section of the County, but the lack of

                individual resources of the County's residents must be

                                             53

                 considered when ignoring a temporary housing program.

                                         FRANKLIN COUNTY

                 Without doubt, Franklin County is the forerunner in the region

                 in regards to post-hurricane assistance needs. The scenarios

                 selected all approach landfall in either the Carrabelle or

                 Apalachicola region. In the event that the simulated category

                 five hurricane, depicted making landfall east of the county,

                 was to strike, not only would the majority of housing units be

                 severely damaged, but beach    and coastal homes may be washed

                 away

                                         Recommendation

                 The temporary housing needs for Franklin County range from zero

                 under the smallest hurricane scenario, to almost three thousand

                 in a severe hurricane. The problem with allocating housing

                 units to these residents is that a high intensity storm of

                 between 3-5 on the Saffir Simpson Scale, would wash away roads

                 necessary to transport the residential units to the victims,

                 leaving them without access to them. Under these circumstances,

                 the surplus  of Franklin County's homeless might have to be

                 accommodated by rental and vacant units in Jackson, Calhoun or

                 other inland Counties.

                                              54

                                        GADSDEN COUNTY

                Gadsden County lies just south of the Georgia border, buffered

                from the open ocean by Leon and Wakulla Counties to the east,

                and Liberty and Franklin counties to the west. As tables 7 and

                8 indicate only the most catastrophic storm will cause damages

                of over 25%, and that would only be to mobile homes.

                Gadsden County borders both the Ochlocknee and Apalachicola

                rivers. Under severe conditions there will be substantial

                flooding around these rivers,       fortunately most of the

                population lies out of the one hundred-year flood plain.

                                        Recommendation

                It is likely that Gadsden County will never have to rely on

                FEMA's temporary housing program, but in the event that coastal

                counties in the region suffer tremendous damage, the County

                should devise a program that would accommodate those victims

                that come from   the coastal counties counties.

                                          GULF COUNTY

                Geographically Gulf County lies in a similar storm probability

                track as Franklin County, but economically there are more

                resources to counter the post hardships of the storm. By no

                means is the County financially well off, and regardless of the

                                             55

                          intensity of the hurricane substantial housing aid still must

                          be rendered. Potential need for temporary housing units may

                          approaches         3500 units under the most severe circumstances,

                          which in this case is scenario U. Port St. Joe, the major

                          populated area in Gulf County, is buffered                                      from the full

                          intensity of a storm by Cape San Blas to the southwest and

                          the mainland to the south southeast.

                                                                 Recommendation

                          Gulf County must develop a program that would assist FEMA in

                          its effort to aid them with temporary housing if a major storm

                          were      to     occur.        It     is    doubtful           t h a t   u n d e r    t h e   w o r s e

                          circumstances enough units would be available. In this event

                          the County must look inland for assistance.

                                                                 JACKSON COUNTY

                          As tables 12 and
                                                      13 show, Jackson County would suffer little if

                          any structural damage under any storm scenario. The County lies

                          further inland than any other within the Region, so even if a

                          major hurricane were to hit the gulf coast the distance it

                          would travel over land would be a factor in reducing its

                          severity by the time it reached the County. Under the worse

                          circumstances,               mobile homes would suffer extensive wind

                          damage, but the County should have the capacity to house those

                          whose mobile homes were damaged or destroyed.

                                                                          56

                                        Recommendation

                Jackson County, like Gadsden, probably will never have to rely

                on FEMA's temporary housing programs. As mentioned previously,

                the County should look for methods of accommodating homeless

                victims from coastal counties that have suffered extensive

                residential damage.

                                       JEFFERSON COUNTY

                Phase One of the Apalachee Region Hurricane Loss study did not

                include any surge damage estimates based on hurricane scenarios

                for Jefferson County. There is no private land ownership in the

                vulnerable southern portion of the county, which is federal

                land, and the population is sparse in the less vulnerable

                northern section of the county. The only agglomeration of

                people is in the Monticello area f ar inland. In the event of a

                catastrophic storm, small populations along the Aucilla and

                Wacissa rivers may suffer substantial flooding and be in need

                of housing assistance.

                                        Recommendation

                Limited wind and rain damage to residential structures may

                occur in Jefferson County. The County will likely need

                assistance if a hurricane with heavy winds were to strike, due

                                             57

                 to the large number of mobile homes in the county.

                                           LEON COUNTY

                 Leon County is the only urbanized County in the region, so even

                 though it is located inland, there are a large quantity of

                 dwelling units vulnerable to heavy winds and rainfall that

                 would accompany a major storm. Tables 14 and 15 show that under

                 the most severe circumstances damage to dwelling units will be

                 between 25 and 50 percent. This means that under the worse

                 scenario moderate, not extensive structural repair will be

                 required.

                                         Recommendation

                 In relation to the rest of the region, Leon County has better

                 financial capabilities to effectively counter storm related

                 damage. Because there is a low probability of a major storm

                 reaching Leon County, there should be a program developed to

                 assist in housing those in need of temporary shelter from the

                 coastal counties.

                                         LIBERTY COUNTY

                 Liberty is the least populated county in the region. Most of

                 the population lies in Bristol, a town in the central portion

                 of the County along the Apalachicola River. Tables. 16 and 17

                                              58

                 show that Liberty County will need only 77 temporary housing

                 units from FEMA in the event of a major storm. Heavy rainfall

                 and floodwaters may cause substantial damage in the Bristol

                 area.

                                           Recommendation

                 Although the charts show Liberty County will not need a great

                 deal of Federal Housing Assistance, the limited resources of

                 the residents have to be considered. The population probably

                 lacks the resources to repair damage of less than 25% that does

                 not show up on the tables. In Liberty County a fast home repair

                 program would be more useful than a temporary housing program.

                                           WAKULLA COUNTY

                 Unlike Gulf and Franklin Counties,        Wakulla County has no

                 barrier islands to buffer the initial devastation of a

                 hurricane.   Ocean-front housing units are extremely vulnerable

                 in the county as shown under the weakest storm scenario in

                 table 18. Because an appropriate storm simulation was

                 unavailable from phase one of the Hurricane Loss Study the

                 effects that a category 3,4 or 5 hurricane will have on the

                 region is unknown, however in reviewing losses from level 1 and

                 2 storms, it can be surmised that nearly all coastal dwelling

                 units will be devastated by very high storm surge and flooding.

                                                59

                                         Recommendation

                 Wakulla County will have to be allocated immediate temporary

                 housing provisions in the event of any hurricane. In instances

                 where all housing units in a region are destroyed,       it is

                 unlikely that FEMA could provide the necessary accommodations,

                 however the population in Wakulla County is still relatively

                 low, and can conceivably be covered through effective local

                 government coordination.

                                              60

                                      INDIVIDUAL ASSISTANCE

             Individual assistance includes provisions for families and small

             businesses who qualify. This assistance is allocated in the form

             of grants and loans used for agricultural assistance, replacement

             of personal property, reduction of economic losses and

             reestablishing places of employment. This section examines the

             need for individual assistance in the Apalachee Region,           and

             briefly analyze two programs, (Individual and Family Grants and   Low

             Interest Disaster Loans) that provide that assistance.

             A. Individual and Family Grants

                 Several agencies are involved in the administration of

                 Individual and Family Grants. Finances are divided into a 75%

                 Federal share and a 25% State share. The assistance available

                 for qualified applicants ranges from food stamp allocation to

                 the administration of legal counsel, all of which were examined

                 in the Federal Assistance Program section.

             B.  Low Interest Disaster Loans

                 Low interest disaster assistance loans are usually allocated to

                 those who have experienced losses to their economic stability,

                 rather than personal necessities. Qualifiers include those who

                 have experienced crop damage, or damage to their employment

                 source. Again, the assistance available was examined in the

                                              61

                                                                       TABLE 20

                                                  WIP COVERAGE FOR THE COUNTIES OF THE APALACHEE REGION

                                                       POLICIES                              COVERAGE

                       COUNTY               RESIDENTIAL       COMMERCIAL         RESIDENTIAL           COMERCIAL                TOTAL

                       CALHOUN                     7                  1            $236,700               W1000                   $52,600

                       GULF                       M                  22          $14,701,011            $1,515,400             $16,216,400

                       GADSDEN                     4                  1            Sl16.iOO               $200,000                S316,iOO

                       JACKSON                     8                  4            $164,400               $325,700                $490,100

                       FRANKLIN                   444                29          $27,540,70D            $2,463,300             $30,004,000

                       LEON                       135                16           $7,055,300            $1,132,800              $8.188,100

                       LIBERTY                     0                  1                    0              $25,000                  $25,000

                       WAKULLA                    126                 6           $6,209,800              $335,900              $6,545.700
                       JEFFERSON                   0                  1                    0              $2510,00                 $25,000

                                                                           62

                                                           GRAPH 1
                                        TOTAL NFIP COVERAGE
                        32-                           APALACHEE REGION

                        30 -

                        28 -

                        26-

                        24-

                        22 -

                        20-

                    U)  18-
                    c
                 cr- o
                        16 -
                  0:2   14-

                        12-

                        10-

                         a-

                         6 -

                         4-

                         2-

                         0
                             CAL     GUL     GAD      JAC     FRK     LEO     LIB     WAK      JEF

                                                            COUNTY
                                         RESIDENTIAL                   COMMERCIAL

                                                                                       .TABLE 21

                                                                    ESTIMATED STRUCTURAL LOSSES BY HURRICANE SCENERIO

                                      CALHOUN COUNTY                                         i                            JACKSON COUNTY

                 SCENARIO        RESIDENTIAL           COMMERCIAL             TOTAL            SCENARIO                RESIDENTIAL           COMMERCIAL        TOTAL

                      H            $363,279               $40,982             $404,361              A                     $2,473,490            $264,497       $2,737,985

                      M            $118,475               $7,879              $126,354              G                     $652,000              $33,631         $685,631

                      R            $2,128,895          $209,681            $2,338,576               D                     $8,224,648         siliao,389        $9,404,037
                      T            $2,964,512          $429,468            $3,393,980               T                  $11,435,380           $1,663,242        $13,098,622

                      U            $6,649,371         $2,036,347           $8,685,717               U                  $25,440,550           $3,790,296        $29,230,946

                                      FRANKLIN COUNTY                                                                     LEON COUNTY

                 SCENARIO          RESIDENTIAL         COMMERCIAL             TOTAL            SCENARIO                   RESIDENTIAL        COMMERCIAL         TOTAL

                      p            $9,398,160          $1,381,709             $10,779,869    *      p                     $25,165,390        $4,345,390        $29,510,990

                                   $13,003,697         $2,069,684             $15,073,381    #      B                     W,25,350           $7,961,000        $54,1761350

                      N            $24,770,821         $3,465,951             $28,236,772    #      C                     $71,300,000        $12,205,000       $83,505,000

                      0            $56,929,8%          $5,101,752             $62,031,568    #      a                  W6045,000             $31,495,250       $207,640,250

                      1            $33,971,417         S4,36402               $38,335,529    #      1                  $537,350,000          $92,000,000       $537,350,000

                                     GULF COUNTY                                                                          LIBERTY COUNTY

                 SCENARIO          RESIDENTIAL         COMMERCIAL             TOTAL          # SCENARIO                   RESIDENTIAL        COMMERCIAL         TOTAL

                      v            $1,588,260             $0026               $1,693,386     #      H                      $151,000             $10,300         $161,300
                      N            $3,260,8W              $284,551            $3,545,351     *      G                      $263,940             $21 1350        $285, 190

                      S            $59,495,000         $3,070,235             $62,565,235    *      L                        $55.380             $1,050           $56,430

                      a            $12085,223             $510,228            $12,695,451    *      0                      $518,350             $44,050         $562,400
                      U            $70,223,202         $4,727,251             $74,950,453    *      1                     $4,450,000            $135,450       $4,585,450

                                    GADSDEN COUNTY                                                                        WAKULLA COUNTY

                 SCENARIO          RESIDENTIAL         COMMERCIAL             TOTAL          * SCENARIO                   RESIDENTIAL        COMMERCIAL         TOTAL

                      H            $2,020,332             $iB7,571            $2,207,903     *      A                     SM05,000              $368,500       $3,473,500
                      G            $4,590,356             $379,28q            $4,969,645     *      0                     $13,450,000        $1,627,355        $15,077,355
                      s            $5,993,952             $550,997            $6,444,849     *      F                     $2,056,395            $132,650       $2,189,045

                      a            $6,352,386             $551,587            $6,903,975     *      a                     $7,345,605            $242,565       $7,588,170
                      1            $31,585,940         $2,732,533             $34,318,473    *      1                     $17,148,590        $1,269.427        $18,418,017

                                                                                       64

                                                     TABLE 22

                                         PERCENT OF INSURED STRUCTURES

                                                 APALACHEE REGION

                                                 RESIDENTIAL

                            COUNTY       STRUCTURES       POLICIES*         PCT.*

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

                            CALHOUN             3190         1995          62.5

                            FRANKLIN            4477           888         19.8

                            GADSDEN           10,388         6493          62.5

                            GULF                4297           246           6.6

                            JACKSON           12,121         7575          62.5

                            JEFFERSON         3,500               0            0
                            LEON              52,183        32,614         62.5

                            LIBERTY           1,480            925         62.5

                            IJAKULLA          3,996            252         62.5

                            *ADJUSTED FOR INLAND COUNTIES

                                                 COMMERCIAL

                            COUNTY        STRUCTURES      POLICIES*       PCT.*

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

                            CALHOUN             193            120         62.5

                            FRANKLIN            340             58           17

                            GADSDEN             464            290         62.5

                            GULF                298             44         14.7

                            JACKSON             904            565         62.5

                            JEFFERSON            28               2            7

                            LEON              3951           2469          62.5

                            LIBERTY              17             11         62.5

                            IJAKULLA             98             12         12.2

                            *ADJUSTED FOR INLAND     COUNTIES

                                                        65

                                                                                   ..TABLE 23

                                                                        TOTAL INDIVIDUAL ASSISTANCE WEDS

                                                                    BY STORM SCENERIO IN THE APALACHEE REGION

                                                        RESIDENTIAL                                   COMMERCIAL

                                              STRUCTURAL       PCT.        UNINSURED      STRUCTURAL      PCT.      UNINSURED        TOTAL ASSISTANCE

                      COUNTY SCENARIO            LOSS      UNINSURED        LOSS             LOSS      UNINSURED        LOSS           NEEDED

                      CALWUN         H          $363,279     27.50%        $99,901           $40,982      27.50%        $11,270        $111, 171

                                                $118,475     27.50%        $32,581           $7,879       27.50%        $2,167         $34,747

                                     R        $2,128,895     27.50%        $585,446          $209,681     27.50%        $57,662        $643,108

                                     T        $2,694,512     27.502        $85,240           $429,468     27.50Z        $118,104     $3,897,856

                                     U        $6,643,710     27.501     $1,827,020        $2,036,347      Z7.50%        $559,995     $2,387,015

                      FRANKLIN       P        $9,398,160     80.00%     $7,518,528        $1,381,709      83.00%    Si,146,818       $8,665,346

                                     M        $13,003,697    80.00%     $10,402,958       $2,069,694      93.00%    $1,717,837       $12,120,796
                                     N        $24,770,821    80.00%     $19,816,657       $3,465,951      93.00%    $2,876,739       $22,693,396
                                     0        $56,929,816    80.00%     $45,543,853       $5,101,752      83.00%    $4,234,454       $49,728,307
                                     i        S33,971,W      80.00%     $27,177,134       $4,364,12       83.00%    $3,622,213       $30,799,347

                      GADSDEN        H        $2,020,332     27.50%        $555,591          $187,571     27.50%        $51,582        $607,173
                                     G        $4,590,356     27.5OX     $1,262,348           $379,289     27.50%        $104,304     $1,366,652
                                     S        $5,893,852     27.50X     $1,620,809           $550,997     27.5D%        $151,524     $1,772,333

                                     0        $6,352,386     27.50%     $1,746,906           $551,587     27.50%        $151,686     $1,898,592

                                     1        $31,585,940    27.50%     $8,686,134        $2,732,533      27.50%        $751,446     $9,437,580

                      GULF           U        $1,588,260     93.30%     $1,481,846           $105,126     85.30%        $89,672      $1,571,518

                                     M        $3,260,800     93.30%     $3,042,326           $284,551     85.301        $242,770     $3,285,046

                                     S        $59,495,000    93.30%     $55,508,836       $3,070,235      85.30%    $2,618,910       $58,127,745
                                     a        $2,185,233     931.30%    $11,368,813          $510,228     85.30%        $435,224     $11,804,037
                                     U        $70,233,Z02    93.30%     $65,518,266       $4,727,251      85.30%    $4,041,799       $69,560,065

                      JACKSON        A        $2,473,4?0     27.50%        $680,210          $264,497     27.50%        $72,737        $752,947

                                     G           $652,000    27.50%        $179,300          $33,631      27.50%        $9,248         W8,549

                                     D        $8,224,648     27.50X     $2,586,385        $1,180,389      27.50%        $324,606     $2,SM,385

                                     T        $11,435,380    27.50%     $3,144,740        $1,663,242      27.50%        $457,393     $3,602,122

                                     N        $25,440,550    27.50%     $6,996,151        $3,790,296      27.50%    $1,042,331       $8,038,482

                                                                                   66

                                                                                           TABLE 23

                                                                              TOTAL INDIVIDUAL ASSISTANCE NEEDS

                                                                          BY STORM SCENERIO IN THE APALACHEE REGION

                                                            RESIDENTIAL                                      COMMERCIAL

                                                  STRUCTURAL        PCT.        UNINSURED       STRUCTURAL       PCT.       UNINSURED        TOTAL ASSISTANCE

                         COUNTY    SCENARIO           LOSS      UNINSURED        LOSS              LOIS       UNINSURED        LOSS             NEEDED

                         LEON            P       $23,165,390      27.50%      $4,345,600        Si, 195,040      27.50%     $1, 195,040      $8, 115,522

                                         B       $46,215,350      27.50%      $7,961,000        $2,189,275       27.501     $2,169,275       $14,987,496

                                         C       $77,300,000      27.50%      $12,205,000       $3,356,375       27.501     1?,.356,375      $24,613,875

                                         0      .$183,356,654     27.50%      $31,495,250       $8,661,194       27.50%     $3,356,375       $57,iOl,O69

                                         1      $445,350,000      27.50%      $92,ODO,000      $25,300,000       27.50%    $25,300,000      $07,721,250

                         LIBERTY         H           $151,000     27.50%         $41,525            $10,300      27.50%          $2,833         $444,358

                                         G           $263,840     27.50%         $19,082            $21,350      27.50%          $5,871          $24,953

                                         L            $55,380     27.50%         $15,229             $1,050      27.50%            $288          $15,518
                                         a           $518,350     27.50%         $152,546           $44,050      27.50%         $12,113         $154,659
                                         1        $4,450,000      27.50%      $1,223,550          $135,450       27.50%         $36,987      $1,267,935

                         WAKULLA         A        $3,105,000      93.70%      $2,909,385          $368,500       87.80X        $322,094      $3,231,479

                                         B       $13,450,000      93.70%      $12,602,650       $1,627,355       87.80%     $1,428,818       $14,031,468
                                         F        $2,056,395      93.70%      $1,962,842          $152,650       87.80%     $2,276,242       $2,276,242

                                         a        $7,345,605      93.70%      $6,882,832          $242,565       87.801        $212,q72      $7,095,804

                                         1       $17,148,590      ?3.70%      $16,068,229       $1,269,427       87.80%     $1,114,556       $17,182,786

                                                                                          6 7

                 Federal Assistance Program Section.

              C. Interpretation of Tables 20 through 23

                 To calculate the amount of individual assistance needed under

                 these programs, the scenarios used in the Temporary Housing

                 Section are utilized to simulate damage estimates. Phase one of

                 The Apalachee Region Hurricane Loss Study determined the

                 monetary residential and commercial damage estimates based on

                 different storm scenarios. This study selected five storm

                 scenarios of varying intensity for each county, and summed up

                 the amount of commercial and residential damage they would

                 create.  The amount of insurance to cover the damage was

                 assessed and subtracted from the damage sum to obtain the

                 amount of individual assistance that would be required based on

                 each scenario for the counties in the region.

                                            Table 20

                 Table 20 indicates the number of flood insurance policies and

                 monetary coverage for residential and commercial structures in

                 each county of the Apalachee region. The Counties in the

                 Apalachee Region are relatively new to the regular phase of the

                 National Flood Insurance Program, so the number of policies and

                 amount of coverage in relation to the rest of the state is

                 relatively low. The Flood Insurance Program covers only water

                 induced damage, thus the number of policies for inland counties

                                              68

                are extremely low. Only structures located in the 100-year

                floodplain are required to have flood insurance.

                                           Table 21

                Table 21 indicates the amount of monetary damage that would

                occur to both residential and commercial structures based on

                the same hurricane scenarios used to determine temporary

                housing needs. As mentioned in the previous section, SPLASH

                models, which do no  t account for wind and rainfall induced

                damage,  were used to obtain these figures,      so the total

                structural damage for inland counties will be substantially

                higher in the event of a major storm.

                                           Table 22

                Table 21 indicates the adjusted ratio of insurance policies   to

                actual residential and commercial structures in each county of

                the Apalachee Region. Inland counties are not extensively

                covered under the NFIP, so for purposes of this report an

                insurance rate of 62.5% was used. This figure is adjusted

                down 10% from the standard figure used by the General

                Reinsurance Co. Report. This adjustment is an inferential

                estimation based on income of the residents in the region and

                the likelihood that they cannot afford substantial amounts of

                homeowners insurance.

                                             69

                                            Table 23

                 Table 23 represents the total amount of individual assistance

                 that will be required based on the selected storm simulations

                 and the calculation of the previously explained formula. The

                 figures for individual assistance needs range from only $15,000

                 under a small hurricane scenari-o in Liberty County, to

                 $150,000,000 in Leon County in a catastrophic hurricane

                 situation. If these figures are appropriately adjusted upward,

                 the damage potential becomes astronomical. Upon relating these

                 figures to the limited resources of the residents of the

                 Apalachee Region, it becomes apparent   that local governments

                 must extensively promote the NFIP in there counties.

                                              70

                                     PUBLIC ASSISTANCE

             Public assistance is available for communities who have suffered

             extensive public facility damage as a result of a major hurricane.

             Public assistance eligibility depends upon    whether the damaged

             facilities create a negative impact on the public's health, safety

             and welfare, and the financial ability of that community to

             repair the damage.    Funds for public assistance are usually

             available in the form of Community Facilities Loans. these loans

             are allocated on a cost sharing basis between state and federal

             government.   The federal government will provide 75% of the

             assistance and the state 25%. This section quantifies the need for

             public assistance based on replacement costs for the following

             categories: water facilities; wastewater facilities; electric

             utilities; transportation facilities; nursing homes; hospitals and

             government owned facilities.

             A. Replacement Costs

                Most public facility replacement costs are provided by FEMA.

                Limitations are placed on grants so that facilities are

                restored only to pre-event condition.      All public service

                facilities may be covered by the programs previously mentioned

                in the Federal Assistance Programs Section.

                                             71

              B. Methodology

                The methodology for determining replacement costs of public

                facilities in each county differs from the methodology used in

                determining individual assistance needs.     Phase One of the

                Hurricane Loss Study listed the sum value and location of

                various facilities, but did not estimate damage based on storm

                scenarios. In determining facility replacement costs, the

                value of each different facility was summed. That monetary

                figure was disaggregated into percentages from 10 to 100 in

                intervals of ten. This method may be of more use than basing

                damage estimates on storm scenarios, because an actual storm

                will never accurately simulate a model scenario. An assessor

                can determine the amount of damage (for example) to hospitals.

                If he estimates that all hospitals in Leon County are damaged

                by 30%, the corresponding dollar figure is available in the

                following table under Leon County in the category Hospitals.

                The amount of monetary assistance required can than be

                distributed by the various federal assistance programs.

             C. Water Facilities

                Immediate restoration of   water supply facilities is critical

                to a community in its post event condition. People failing to

                store adequate quantities of potable water have to rely on

                treating water themselves. Insufficient treatment can lead to

                adverse health effects to much of the population, which can

                                             72

                  further cripple a region after a storm. Table 24 estimates

                  replacement costs to water facilities based on the percentage

                  damaged.

                                                 Table 24

                                   WATER FACILITY REPLACEMENT COSTS

                     WAKULLA COUNTY                                       LEON COUNTY

                   DAMAGE            COST                             DAMAGE         COST

                   10%            $201,800                            10%           $958,663

                   20%            $403,600                            20%        $1,917,326

                   30%            $605,400                            30%        $2,875,989'

                   40%            $807,200                            40%        $3,834,652

                   50%          $1,009,000                            50%        $4,793,315

                   60%          $1,210,800                            60%        $5,751,978

                   70%          $1,412,600                            70%        $6,710,641

                   80%          $1,614,400                            80%        $7,669,304

                   90%          $1,816,200                            90%        $8,627,967

                  100%          $2,018,000                            100%       $9,586,630

                                                    73

                      GADSDEN COUNTY                                   JACKSON COUNTY

                    DAMAGE          COST                             DAMAGE        COST

                    10%            $662,910                          10%         $399,120

                    20%         $1,325,820                           20%         $798,240

                    30%         $1,988,730                           30%       $1,197,360

                    40%         $2,651,640                           40%       $1,596,480

                    50%         $3,314,550                           50%       $1,995,600

                    60%         $3,977,460                           60%       $2,394,720

                    70%         $4,640,370                           70%       $2,793,840

                    80%         $5,303,280                           80%       $3,192,960

                    90%         $5,966,190                           90%       $3,592,208

                    100%        $6,629,100                           100%      $3,991,200

                      JEFFERSON COUNTY                                LIBERTY  COUNTY

                    DAMAGE           COST                            DAMAGE          COST

                    10%              $93,620                         10%           $63,400

                    20%            $187,240                          20%         $126,800

                    30%            $280,060                          30%         $190,200

                    40%            $374,480                          40%         $253,600

                    50%            $468,100                          50%         $317,000

                    60%            $561,200                          60%         $380,400

                    70%            $6559340                          70%         $443,800

                    80%            $748,960                          80%         $507,200

                    90%            $842,580                          90%         $570,600

                    100%           $936,200                          100%        $634,000

                                                    74

                     GULF COUNTY                                    FRANKLIN COUNTY

                   DAMAGE           COST                            DAMAGE         COST

                   10%            $110,960                          10%          $227,082

                   20%            $221,920                          20%          $454,164

                   30%            $332,880                          30%          $681,246

                   40%            $443,840                          40%          $908,328

                   50%            $554,800                          50%        $1,135,410

                   60%            $665,760                          60%        $1,362,492

                   70%            $776,720                          70%        $1,589,574

                   80%            $887,680                          80%        $1,816,656

                   90%            $998,640                          90%        $2,043,738

                   100%          $1,109,600                       100%       $2,270,820

                                              CALHOUN COUNTY

                                           DAMAGE             COST

                                           10%              $89,610

                                           20%             .$179,220

                                           30%            $268,830

                                           40%            $358,440

                                           50%            $448,050

                                           60%            $537,660

                                           70%            $627,270

                                           80%            $716,880

                                           90%            $806,490

                                          100%            $896,100

                                                   75

               D. Waste Water Facilities

                   Storm damage to waste water treatment plants can lead to

                   widespread sanitation problems. Untreated wastes, loose as a

                   result of flooding, can cause outbreaks of various negative

                   health affects. The immediate restoration of waste 'water

                   facilities is crucial to a county during its post event

                   condition. Table 25 determines the cost of repairing each

                   county's sewage treatment facility by percentage and monetary

                   value.

                                                 Table 25

                                WASTE WATER FACILITY REPLACEMENT COSTS

                       WAKULLA COUNTY                                   LEON COUNTY

                    DAMAGE             COST                       DAMAGE             COST

                    10%          $163,000                         10%         $4,708,000

                    20%          $326,000                         20%         $9,416,000

                    30%          $489,000                         30%       $14,124,000

                    40%          $652,000                         40%       $18,832,000

                    50%          $815,000                         50%       $23,540,000

                    60%          $978,000                         60%       $28,248,000

                    70%        $1,141,000                         70%       $32,956,000

                    80%        $1,300,400                         80%       $37,664,000

                    90%        $1,467,000                         90%       $42,372,000

                   100%        $1,630,000                         100%      $47,080,000

                                                   76

                     GADSDEN COUNTY                                   JACKSON COUNTY

                   DAMAGE             COST                         DAMAGE             COST

                   10%           $952,000                          10%        $1,472,000

                   20%         $1,904,000                          20%        $2,944,000

                   30%         $2,856,000                          30%        $4,416,000

                   40%         $3,808,000                          40%        $5,888,000

                   50%         $4,760,000                          50%        $7,360,000

                   60%         $5,712,000                          60%        $8,832,000

                   70%         $6,664,000                          70%       $10,304,000

                   80%         $7,616,000                          80%       $11,776,000

                   go%         $8,568,000                          90%       $13,248,000

                   100%        $9,520,000                          100%      $14,720,000

                      JEFFERSON COUNTY                                LIBERTY COUNTY

                   DAMAGE              COST                        DAMAGE             COST

                   10%           $175,000                          10%            $13,000

                   20%           $350,000                          20%            $26,000

                   30%           $525,000                          30%            $39,000

                   40%           $700,000                          40%            $52,000

                   50%           $875tOOO                          50%            $65,000

                   60%         $1050,000                           60%            $78,000

                   70%         $1,225,000                          70%            $91,000

                   80%         $1,400,000                          80%           $104,000

                   90%         $1,575,000                          90%           $117,000

                   100%        $lt750,000                          100%          $130,000

                                                    77

                      GULF COUNTY                                FRANKLIN COUNTY

                   DAMAGE           COST                       DAMAGE            COST

                   10%          $909,000                       10%           $340,600

                   20%       $1,818,000                        20%           $681,200

                   30%       $2,727,000                        30%        $1,021,800

                   40%       $3,363,600                        40%        $1,362,400

                   50%       $4,545,000                        50%        $1,703,000

                   60%       $5,454,000                        60%        $2,043,600

                   70%       $6,363,000                        70%        $2,384,200

                   80%       $7,272,000                        80%        $2,724,800

                   90%       $8,181,000                        90%        $3,065,400

                   100%      $9,090,000                        100%       $3,406,000

                                            CALHOUN COUNTY

                                         DAMAGE             COST

                                         10%             $166,000

                                         20%             $332,000

                                         30%             $498,000

                                         40%             $664,000

                                         50%             $830,000

                                         60%             $996,000

                                         70%           $1,162,000

                                         80%           $1,328,000

                                         90%           $1,494,000

                                         100%          $1,660,000

                                                 78

                                       FIELD ASSISTANCE

             A, Disaster Field Offices (DFO)

                The Disaster Field Office is set up as a coordination station

                for all state and federal assistance programs within counties

                under the President's disaster declaration. The offices are run

                and staffed by both a FEMA and a state appointed official. The

                function of these offices is the collection and processing of

                damage survey report s, and requests for individual assistance

                and small business loans. Damage survey reports are monetary

                damage estimates to specific buildings and facilities compiled

                by assessment teams from FEMA, the State and the affected local

                government. These reports and applications are evaluated and a

                decision on the amount of funding to be obligated to each

                locality is made.

             B. Disaster Application Centers (DAC)

                Disaster application centers are set up in counties under the

                President's disaster declaration after the disaster field

                offices have been established. Staff in these centers will

                assist affected individuals in filling out the proper

                applications. The applications are than sent to the disaster

                field office for processing.

                                             31

              C. Civil Defense Directors Duties

                 Federal and State authorities who set up each county's disaster

                 application center need to designate a site which contains

                 adequate communication and administrative capabilities. the

                 Civil Defense Director for each county has the responsibility

                 of assuring that an appropriate site has been assigned as

                 depicted in their Emergency Management Plan. Table 1 lists the

                 Civil Defense Director of each county in the Apalachee region

                 accompanied by the corresponding office address and telephone

                 number.

             D. Site Determination

                 Several criteria are utilized in determining the appropriate

                 site for each county's application centers and field office.

                 These sites must be pre-determined to be able to withstand

                 hurricane induced damage, be in a flood free zone, have easy

                 access and ample parking, be under public ownership and have

                 adequate emergency facilities. More than one designation has to

                 be assigned for the Disaster Application Center, unlike the

                 single location for the DFO per county. The DAC must be

                 accessible for both government officials and the general public

                 in need, while the DFO has to be within close proximity of a

                 centralized government facility. Table 2 lists the recommended

                 county sites based on the-previous criteria for disaster field

                 offices and application centers in the Apalachee Region.

                                              32

                                                                           TABLE I

                                                       CIVIL DEFENSE DIRECTORS IN THE APALACHEE REGION

                           COUNTY                      WE                              LOCATION                               TELEPHONE

                           CALHOUN                     NATHAN GOODMAN                  BASEMENT OF CkMb                       674-8075

                                                                                       COUNTY COURTHOUSE

                           FRANKLIN                    EUGENE ELLER                    FRANKLIN COUNTY COURTHOUSE             653-8977

                                                                                       APALACHICOLA

                           GADSDEN                     CHARLIE BETTS                   GADSDEN COUNTY COURTHOUSE              674-8075

                                                                                       SOUTH MADISON ST.

                                                                                       QUINCY

                           GULF                        LARRY WELLS                     GULF COUNTY COURTHOUSE                 227-1735

                                                                                       PORT ST. JOE

                           JACKSON                     JAMES MAYDER                    JACKSON COUNTY COURTHOUSE              526-45DO

                                                                                       PELT ST. MARIANNA

                           JEFFERSON                   BOB KNECHT                      JEFFERSON COUNTY COURTHOUSE            997-5762

                                                                                       140 WEST WASHINGTON

                                                                                       MONTICELLO

                           LEON                        BUNKY ATKINSON                  LEON COUNTY COURTHOUSE                 488-5921

                                                                                       TALLAHASSEE

                           LIBERTY                     ART PREACHER                    CIVIL DEFENSE AND PLANNING OFFICE      643-2339

                                                                                       RIVER STREET

                                                                                       BRISTOL

                           WAKULLA                     ERIC HINDLE                     WAKULLA COUNTY COURTHOUSE              926-5424

                                                                                       CRAWFORDVILLE

                                                                                 33

                                                                                  TABLE 2

                                                                          POTENTIAL LOCATIONS FOR

                                                                          DISASTER FIELD OFFICES

                                                                   FOR THE COUNTIES OF THE APALACHEE REGION

                       COUNTY           LOCATION                         DESIGNATION      COUNTY        LOCATION                            DESIGNATION

                       CALMN          1. CALHOUN COUNTY COURTHOUSE       DFO/DAC      -   JACKSON    1. HRS CENTER                          DFO/DAC

                                        BLOUNTSTOWN                                   -                 401 EAST CLINTON ST.

                                                                                      -                 MARIANNA

                       FRANKLIN       1. CARRABELLE CITY HALL            DFO/DAC      -

                                        CARRABELLE                                    -   JEFFERSON 1.  JEFFERSON COUNTY COURTHOUSE         DFO/DAC

                                      2. EASTPOINT ARMORY                DFO/DAC      -                 140 WEST WASHINGTON

                                        EASTPOINT                                     -                 MONTICELLO

                                      3. FRANKLIN COUNTY COURTHOUSE      DAC          -

                                        APALACHICOLA                                  -   LEON        i. CAPITAL OUTLET CENTER              DAC/DFO

                                                                                      -                 WEST TENNESSEE STREET

                       GADSDEN        i. GADSDEN COUNTY COURTHOUSE       DFO/DAC      -                 TALLAHASSEE

                                        SOUTH MADISON ST.                             -               2. TALLAHASSEE RECREATIONAL COW       DAC

                                        QUINCY                                        -                 JACKSON BLUFF ROAD

                                                                                      -                 TALLAHASSEE

                       GULF           1. PORT ST. JOE FIRE HOUSE         DFO/DAC      -

                                        404 WILLIAMS AVE                              -   LIBERTY      1. LIBERTY COUNTY COURTHOUSE         DAC/DF0

                                        PT. ST. JOE                                   -                  BRISTOL

                                      2. COMMUNITY CENTER                DAC          -
                                        WEWAHITCHKA                                   -   WAKULLA      1. LIVESTOCK PAVILLION               DAC/DFO

                                                                                      -                  DOWNTOWN CRAWFORDVILLE

                                                                                      34

                                           ANALYSIS

                It must be noted that the population of each county in the

                Apalachee region is relatively small compared to the rest of

                the State, thus many Counties use the same facility for both

                the DFO and DAC. Many of the proposed facilities have not been

                used in emergency situations,   therefore performance standards

                have yet to be determined. The Franklin County Courthouse was

                sandbagged during hurricane Kate, therefore it would only be

                available during a low intensity storm. In the event of a

                hurricane,   the location of centers will be reassessed by

                government officials, who may decide to change location.

                                    Post DAC/DFO Assistance

                When the disaster assistance centers are gone, mobile service

                centers are available for assistance two days a week. Hot lines

                are also open up to 60 days after the DACIS close down.

                Operators will accept and process requests for aid.

                                             35

                                        TEMPORARY HOUSING

                FEMA provides accommodations for those disaster victims left

                homeless as a result of a storm when no housing facilities are

                available from county agencies. Depending upon the situation,

                four t ypes of temporary homes are available; transient

                accommodations,    government owned housing,     private rental

                housing, and mobile homes. The following section examines the

                various temporary housing programs available after a hurricane,

                how to get that assistance, and the potential demand placed on

                temporary housing programs based on selected storm scenarios

                from Phase 1 of the Apa.IAR@A@t Eej.LR!j Hurricane Loss Study.An

                analysis of individual county recommendations based on

                potential temporary housing needs is also contained in this

                section.

                A. Applicant Assistance

                   Applications for temporary housing are taken at disaster

                   application centers. Local governments and the Division of

                   Emergency Management will provide staff assistance to       aid

                   in the application process. The victims first step toward

                   receiving temporary housing involves a pre-screening process

                   to determine the victims eligibility for an application. If

                   deemed eligible, the victim is sent to an interviewer who

                   explains available programs before processing the

                   application. The application is reviewed and a determination

                                              37

                    is made using the following criteria:

                    1. Is the damaged housing unit the primary residence of the

                       applicant?;

                    2. Was the damage a result of the disaster'?;

                    3. Does the applicant have any other available resources

                       such as insurance or another home that will provide him

                       with temporary housing.

              B. Provisions to Eligible Applicants

                 Once an applicant has been approved for one of the temporary

                 housing programs he is informed of the following information;

                 his eligibility; a recommended dwelling unit based on size and

                 price; the duration of assistance, and his responsibilities

                 within that time frame which includes: an acceptance of the

                 first reasonable offer; an expectance that he properly cares

                 for the unit; and an expectance that the applicant will attempt

                 to find permanent residence during his stay in the temporary

                 unit. Once an applicant's period of assistance is over. he may

                 reapply for continued temporary housing.

                 FEMA allocates the bulk of federal housing units. However,

                 housing site allocation, general service provisions and program

                 coordination is up to local governments. Municipalities should

                 interact with FEMA prior to the occurrence of the disaster to

                .insure post-disaster housing operations are efficiently run.

                                              38

                Inadequately tied down housing units and poorly constructed

                manufactured homes are common in the Apalachee Region. These

                homes are not built to withstand hurricane winds and

                floodwaters thus;    even though the region is not heavily

                populated there is a definite need for a temporary housing

                program in the event of a major storm, as the following section

                will discuss

             C. Methodology

                Temporary housing needs are determined by using data from the

                Apalachee Region Hurricane Loss Study (Phase 1). The loss study

                depicted 23 hurricane scenarios based on simulated hurricane

                tracks from the National Weather Service and based the quantity

                of structural damage on them. The scenarios varied in both

                landfall site and intensity. Five hurricanes were selected from

                the 23 scenarios simulated in the first loss study.          The

                intention was to use simulations of all five categories on the

                Saffir Simpson scale coming closest to a direct hit on each

                individual county. Housing needs are than determined based on

                the severity of each storm simulation in relation to location

                of landfall. The selected scenarios and their landfall sites

                are contained in table 3 and map 1 , appendix D    examines the

                Saffir Simpson Scale, and tables 4 through 19 determine the

                demand for temporary housing in the Apalachee region based on

                these scenarios.

                                             39

                                                   TABLE 3

                                            STORM SCENARIO USED,TN
                         INDIVIDUAL ASSISTANCE AND TEMPORARY HOUSING DETERMINATIONS

              storm Scenario            Catego         Landfall Location*           Direction
                                              EX               -                Hurricane Moving
                       A                    I          St. Marks                          NW
                       B                    2          St. Marks                          N
                       C                    3          St. Marks                          N
                       D                    3          St. Teresa                         (NW)
                       E                    3          St. Teresa                         (NE)
                       F                    3          St. Teresa                         (N)
                       G                    2          St. George/carrabelle              N
                       H                    I          St. George/Carrabelle              N
                       1                    3          St. George Carrabelle              (N)
                                            5          St. George/Carrabelle              N
                                            3          St. George/Carrabelle              (NW)
                       L                    3          St. George/Apalachicola            (N)
                       M                    2          St. George/Apalachicola            NW
                       N                    3          St. George/Apalachicola            (NW)
                       0                    4          St. George/Apalachicola            N
                       P                    1          St. George/Apalachicola            NE
                       Q                    4          Cape San Blas                      NE
                       R                    3          Mexico Beach                       N
                       S                    3          Mexico Beach                       NE
                       T                    4          Mexico Beach                       N
                       U                    5          Mexico Beach                       N
                       v                    1          Offshore                   Paralleling
                       w                    1          Offshore                   Paralleling

              V 6 W do not make landfall but parallel'the shoreline.

                                                      40

                     A L A B A   M A                                      MAP 1
                      ----------------

                                                              HURRICANE    SCENARIO PATHS

                          JACKSON

                                                            E
                                                                  0
                                        j                               R      G          A
                                                     dAd$D.EN
                                                           owiticy
                            CAL.HOUN                                     LEON
                                          12161
                                                                                    JEFFiRSON

                                          fBiRTY

                                                              WAKU
                                                                   LLA
                                                                   0Cro.twelvil

                          GULF

                                                                           00
                                              FRANKLiN*               of
                                                     N
                          Per# V. JI's

                                           POWWOW                                                     A
                                    give..

                 Ql
             N                                                                         --hee
                                                                                                    w
                         P           A

                     T                                                                               \D
                       U

               E/
                                                                                       A\N

                                            SPLASH 11
                            SELECTED               HURRICANE               TRACKS

                                                       41

                                                                                     TABLE 4

                                                                                  CALHOUN COUNTY

                                                                       PROJECTED TEMPORARY HOUSING NEEDS

                                                                          BASED ON DAMAGE GREATER THAN 25%

                             STORM SCENARIO    SINGLE FAMILY       MULTI FAMILY    MOBILE HOME       TOTAL NJMBER        HABITABLE SEASONAL

                                                                                                   OF RENTAL UNITS             UNITS

                                    H                   0                 0-             0                658                   264

                                    M                   0                 0              0                658                   264

                                    R                   0                 0              0                658                   264

                                    T                   0                 0              0                659                   264

                                    U                   0                 0             293               633                   234

                                                                                       TABLE 5

                                                                                    CALHOUN COUNTY

                                                                           PROJECTED TEMPORARY HOUSING NEEDS

                                                                            BASED ON DAMAGE GREATER THAN 50%

                            STORM SCENARIO       SINGLE FAMILY     MULTI FAMILY     MOBILE HOMES        TOTAL MM         HABITABLE SEASONAL

                                                                                                      OF RENTAL UNITS           UNITS

                                    H                   0                 0                0                 658                 264
                                    M                   0                 0                0                 658                 264
                                    R                   0                 0                0                 658                 264
                                    T                   0                 0                0                 658                 264
                                    U                   0                 0              293                 633                 234

                                                                                   42

                                                                                  TABLE 6

                                                                               FRANKLIN COUNTY

                                                                    PROJECTED  TEMPORARY HOUSING NEED

                                                                    BASED ON DAMAGE GREATER THAN 25%

                                                                                                      TOTAL NUMBER       HABITABLE SEASONAL            TOTAL UNITS

                      STORM SCENARIO     SINGLE FAMILY        MULTI FAMILY       MOBILE HOMES      OF RENTAL UNITS               UNITS                   REGUIRED

                              P                 650                 167                261                605                    705                           0

                                                1345                167                420                585                    670                        682

                              N                 1980                170                435                365                    450                       1750

                              0                 2160                215                650                305                    375                       2345

                                                2285                215                &35                m                      360                       2680

                                                                                  TABLE 7

                                                                               FRANKLIN COUNTY

                                                                        PROJECTED TEMPORARY HOUSING NEED

                                                                        BASED ON DAMAGE GREATER THAN 50%

                                                                                                      TOTAL NUMBER          HABITABLE SEASONAL         TOTAL UNITS

                       STORM SCENARIO     SINGLE FAMILY       MULTI FAMILY       MOBILE HOMES        OF RENTAL  UNITS            UNITS                   REQUIRED

                              P                 440                    0               261                  605                     705                        0

                              M                 970                 167                340                  590                     680                      207

                              N                 1910                117                415                  185                     450                      912

                                                2160                215                650                  305                     375                     2345

                                                2285                215                835                  295                     360                     2680

                                                                                       43

                                                                       TABLE 8

                                                                       GULF COUNTY

                                                              PROJECTED TEMPORARY HOUSING NEED

                                                              BASED ON WE GREATER THAN 25%

                                                                                              TOTAL MAR         HABITABLE SEASONAL           TOTAL UNITS

                 STORM SCENAR10     SINGLE FAMILY       MULTI FAMILY      MOBILE MKS        OF RENTAL UNITS             UNITS                  REQUIRED

                        v                   0                 0                   0                787                  415                          0

                        N                   0                 0                   0                787                  W                            0

                        S               E347                 24                 535                345                  190                       2371

                                         200                  6                 237                615                  370                          0

                        U               2650                 31                 943                85                    35                       3794

                                                                      TABLE 9

                                                                     GULF COUNTY

                                                              PROJECTED TEMPORARY HOUSING NEED

                                                              BASED ON DAMAGE GREATER THAN 50%

                                                                                              TOTAL NUMBER.     HABITABLE SEAM              TOTAL UNITS

                 STORM SCENAR10     SINGLE FAMILY        MULTI FAMILY      MOBILE HOMES       OF RENTAL UNITS           UNITS                 REQUIRED

                        v                   0                 0                   0                787                  415                       0

                        N                   0                 0                   0                787                  415                       0

                        S                2347                 14                535                350                  192                     2354

                        a                 200                 0                 107                6"                   385                       0

                        U                2400                 23                943                87                   36                      3533

                                                                                4 4

                                                                               TABLE .1n;
                                                                               I
                                                                              GADSDEN COUNTY

                                                                      PROJECTED TEMPORARY HOUSING NEED

                                                                      BASED ON DAMAGE GREATER THAN 25%

                                                                                                          TOTAL NUMBER         HABITABLE SEASONAL      TOTAL UNITS

                     STORM SCENARIO       SINGLE FAMILY        MULTI FAMILY        MOBILE HOMES         OF RENTAL UNITS                UNITS            REQUIRED

                           H                    0                    0                  0                    3088                      1047                   0

                           G                    0                    0                  0                    3088                      1047                   0

                           s                    0                    0                  0                    3088                      1047                   0

                           0                    0                    0                  0                    3088                      1047                   0

                                                0                    0               1350                    2675                      960                    0

                                                                                TABLE I I

                                                                               GADSDEN COUNTY

                                                                     PROJECTED TEMPORARY HOUSING NEED

                                                                     BASED ON DAMAGE GREATER THAN 50%

                                                                                                    TOTAL NUMBER OF       HABITABLE SEASONAL            TOTAL UNITS

                      STORM SCENARIO       SINGLE FAMILY       MULTI FAMILY       MOBILE WKS         RENTAL UNITS                 UNITS                  REQUIRED

                             H                   0                   0                  0                 3088                    1047                        0

                             G                   0                   0                  0                 3088                    1047                        0

                             5                   0                   0                  0                 3088                    1047                        0

                             0                   0                   0                  0                 3088                    1047                        0

                                                 0                   0                1350                2675                      980                       0

                                                                                        4S

                                                                                  TABLE 12

                                                                                 JACKSON COUNTY

                                                                     PROJECTED TEMPORARY HOUSING WED

                                                                     BASED ON DAMAGE GREATER THAN 25%

                                                                                                         TOTAL NUMBER OF    HABITABLE SEASONAL            TOTAL UNITS

                        STORM SCENARIO      SINGLE FAMILY         MULTI FAMILY      MOBILE HOMES         RENTAL UNITS               UNITS                  REQUIRED

                                A                  0                    0                  0                  3226                  1096                        0

                                G                  0                    0                  0                  3226                  1096                        0

                                D                  0                    0                  0                  3226                  1096                        0

                                T                  0                    0                  0                  3226                  1096                        0

                                U                  0                    0               1852                  2559                  898                         0

                                                                                  TABLE 13

                                                                                 JACKSON COUNTY

                                                                     PROJECTED TEMPORARY H OUS ING NEED

                                                                     BASED ON DAMAGE GREATER THAN 50%

                                                                                                         TOTAL NUMBER OF    HABITABLE SEASONAL             TOTAL UNITS

                        STORM SCENARIO       SINGLE FAMILY      MULTI FAMILY        M091LE MKS           RENTAL UNITS               UNITS                   REQUIRED

                                A                  0                    0                  0                  3226                  1096                        0

                                G                  0                    0                  0                  3226                  1096                        0

                                D                  0                    0                  0                  3226                  1096                        0

                                T                  0                    0                  0                  3226                  1096                        0

                                U                  0                    0               1852                  2559                  898                         0

                                                                                           46

                                                                             TABLE 14

                                                                             LEON COUNTY

                                                                    PROJECTED TEMPORARY HOUSING NEED

                                                                    BASED ON DAMAGE GREATER THNA 25%

                                                                                                   TOTAL KIM OF      HABITABLE SEASONAL           TOTAL UNITS
                      STORM SCENARIO       SINGLE FAMILY     MULTI FAMILY       MOBILE HOMES        RENTAL UNITS             UNITS                  REQUIRED

                              P                    0                0                   0               23,803               51V                          0

                              B                    0                0                   0               23,803               5117                         0

                              C                    0                0                   0               23,803               SW                           0

                              a                    0                0               2172                23,704               4995                         0
                              1              42,000               35                V72                 5,650                 925                   37,632

                                                                               TABLE 15

                                                                               LEON COUNTY

                                                                      PROJECTED TEMPORARY HOUSING NEED

                                                                      BASED ON DAMAGE GREATER THAN 50%

                                                                                                   TOTAL NUKBER OF      HABITABLE SEASONAL          TOTAL UNITS

                        STORM SCENARIO     SINGLE FAMILY        MULTI FAMILY      MOBILE HOMES       RENTAL UNITS              MITI                   REQUIRED

                              P                    0                  0                 0               23,803                 5117                       0

                              B                    0                  0                 0               23,803                 5117                       0
                              C                    0                  0                 0               23,803                 5117                       0

                              a                    0                  0                 0               23,803                 5117                       0

                                                   0                  0             2172                23,704                 4995                       0

                                                                                        47

                                                                            TABLE 16

                                                                          LIBERTY COUNTY

                                                                   PROJECTED TEMPORARY HOMING WED

                                                                   BASED ON DAMAGE GREATER THAN 25%

                                                                                               TOTAL MAR OF        HABITABLE SEASONAL         TOTAL UNITS

                       STORM SCENARIO     SINGLE FAMILY      MULTI FAMILY      MOBILE HOMES      RENTAL UNITS            UNITS                 REWIRED
                                                                                                                                                    ---    I
                             H                   D                0                0                 311                  281                     0

                             6                   0                0                0                 311                  261                     0

                             L                   0                0                0                 311                  281                     0

                             0                   0                0                0                 311                  281                     0

                             1                   0                0               447                243                  127                     77

                                                                             TABLE 17

                                                                           LIBERTY COUNTY

                                                                  PROJECTED TEMPORARY HOUSING NEED

                                                                  BASED ON DAMAGE GREATER THAN 50%

                                                                                                TOTAL NUMBER OF    HABITABLE SEASONAL         TOTAL UNITS

                        STORM SCENARIO    SINGLE FAMILY      MULTI FAMILY       MOBILE HOMES      RENTAL UNITS           UNITS                REGUIRED

                              H                  0                0                  0                311                 281                      0

                              6                  0                0                  D                311                 281                      0

                              L                  0                0                  0                311                 281                      0

                              0                  0                0                  0                311                 281                      0

                                                 0                0                M5                 268                 165                      0

                                                                                 4 8

                                                                                    TABLE 18

                                                                                   WAKULLA COUNTY

                                                                            PROJECTED TEMPORARY HOUSING WED

                                                                            BASED ON DAMAGE GREATER THAN 25%

                                                                                                           TOTAL NAM OF            HABITABLE SEASONAL         TOTAL UNITS

                        STORM SCENARIO       SINGLE FAMILY         MULTI FAMILY        MOBILE HOMES           RENTAL UNITS               UNITS                 REQUIRED

                              A                    am                       0              115                     215                      440                   310

                                                                                           "0                      80                       105                   1835

                               F                       0                    0                 0                    658                    il3i                       0

                                                       0                    0              800                     320                      520                      0

                                                   1477                  420               966                     32                       45                   2796

                                                                                    TABLE 19

                                                                                   WAKLU.4 COUNTY

                                                                            PROJECTED TEMPORARY HOUSING NEED

                                                                            BASED ON DAMAGE GREATER THAN 50%

                                                                                                         TOTAL NUMBER   OF       HABITABLE SEASONAL            TOTAL UNITS

                        STORM SCENARIO          SINGLE FAMILY        MULTI FAMILY       MOBILE HOMES       RENTAL UNITS                UNITS                    REQUIRED

                                                       0                    0              ils                  520                     650                          0

                               B                       850                  0              540                    87                    120                       1195

                               F                       0                    0                 0                 658                    1131                          0

                                                       0                    0              425                  340                     560                          0

                                                       0                    0              960                  130                     234                        706

                                                                                           49

              D. Interpretation of Table's 4 Through 19

                 Determining when a house unit is uninhabitable is difficult

                 because no set percentage of damage has been established that

                 differ.entiates between a habitable and uninhabitable housing

                 unit. On many occasions, 20% of damage resulting from a storm

                 may be associated with critical areas of the house such as

                 bedrooms, bathrooms and the kitchen rendering it uninhabitable,

                 while a house damaged 50% by a storm may suffer damage only to

                 the garage, swimming pool and other additional fixtures that do

                 not affect the habitability of the unit. This is why two tables

                 for each County are exhibited in the demand for temporary

                 housing section. The first table for each county deems a

                 structure uninhabitable if 25% of the unit is damaged and the

                 second table does the same if 50% of it is damaged.          The

                 appropriate table depends on which set standard the reviewing

                 agency chooses to use.

                 Many of the scenarios used in the study show that f ew if any

                 housing units will be required. This is misleading because only

                 if structural damage is above 25% does the study indicate that

                 temporary homes will be required. This does not mean that

                 substantial damage    has not occurred. A County whose average

                 losses are under 25% still may suffer millions of dollars in

                 losses.

                                              so

                 Tables 4 through 19 calculate potential housing demands within

                 each county based on five different hurricane scenarios

                 individually selected    f or each  county.  The f irst column

                 contains a letter identifier that corresponds with a hurricane

                 scenario already described in the methodology part of this

                 section. Total damage does not necessarily correspond to the

                 intensity of the storm, due to the f ailure of obtaining f ive

                 scenarios of varying intensity with the same landfall site, so

                 a category one hurricane hitting the center of a certain county

                 can create a greater demand for temporary housing than a

                 category five storm scenario, if there was no simulation of a

                 category five hurricane making a direct strike on that county.

                 The numbers in columns two, three and four were added together

                 to obtain the total number of housing structures damaged beyond

                 habitability based on the corresponding hurricane scenario.

                 These columns disaggregate housing units into single family

                 dwelling units, multi family dwelling units and mobile homes

                 accordingly.

                 The numbers in columns five and six are subtracted from the sum

                 of columns two, three and four. These two columns consist of

                 the amount of rental units and vacant seasonal dwelling units

                 that may be available to accommodate that county's homeless in

                 the event of the corresponding storm scenario..

                 The number in the column titled TOTAL AVAILABLE UNITS is

                                               51

                 obtained from subtracting the sum of columns five and six from

                 the sum of columns two, three and four. This is the total

                 number of outside temporary housing units that will be needed

                 in the event of the storm scenario depicted in column one of

                 that row.

              E. Limitations

                 The hurricane damage estimates were based on SPLASH models that

                 only consider damage caused by wind and surge. Rainfall, which

                 varies from storm to storm, causes much damage in a hurricane,

                 yet was not accounted for in the SPLASH models, thus the damage

                 figures for   inland counties are substantially lower than can

                 be expected in a real storm.

              F. Sources

                 The figures  in the temporary housing tables were derived from

                 the U.S. 1980 Census of Housing and Phase One of the Apalachee

                 Region Hurricane Loss Study. The number for available rental

                 units and seasonal habitable units came from the U.S. 1980

                 Census of Housing, and the damage estimates came from Phase One

                 of the Loss Study.

                                              52

             G. Individual County Analysis

                                        CALHOUN COUNTY

                Calhoun County, separated from the coast by Gulf County, is not

                susceptible to storm surge. Of the five scenarios selected for

                the County only scenario U, a category five hurricane that

                passes just to the west of the County, would cause wind damage

                greater than 25% to any residential units. This shows the

                inadequacy of the SPLASH model because a storm of this

                magnitude would still cause catastrophic damage even this far

                inward, due to the possible inundation of eastern Blountstown

                by the Apalachicola River. The assessment that no outside

                housing facilities are necessary in this event is misleading.

                The tables stating that scenarios R and T, 100-year storms

                whose dangerous right quadrant sweep the County, would not

                damage any housing facilities must also be analyzed with

                skeptism.

                                        Recommendation

                Although the tables show that Calhoun County has the available

                resources to meet the temporary housing needs of even the most

                catastrophic storm, a "just in case" program should be

                initiated. The most heavily populated center is in the less

                vulnerable southeastern section of the County, but the lack of

                individual resources of the County's residents must be

                                              53

                 considered when ignoring a temporary housing program.

                                          FRANKLIN COUNTY

                 Without doubt, Franklin County is the forerunner in the region

                 in regards to post-hurricane assistance needs. The scenarios

                 selected all approach landfall in either the Carrabelle or

                 Apalachicola region. In the event that the simulated category

                 five hurricane, depicted making landfall east of the county,

                 was to strike, not only would the majority of housing units be

                 severely damaged, but beach     and coastal homes may be washed

                 away

                                          Recommendation

                 The temporary housing needs for Franklin County range from zero

                 under the smallest hurricane scenario, to almost three thousand

                 in a severe hurricane. The problem with allocating housing

                 units to these residents is that a high intensity storm of

                 between 3-5 on the Saffir Simpson Scale, would wash away roads

                 necessary to transport the residential units to the victims,

                 leaving them without access to them. Under these ci   rcumstances,

                 the surplus of Franklin County's homeless might have to be

                 accommodated by rental and vacant units in Jackson, Calhoun or

                 other inland Counties.

                                               S4

                                        GADSDEN COUNTY

                Gadsden County lies just south of the Georgia border, buffered

                from the open ocean by Leon and Wakulla Counties to the east,

                and Liberty and Franklin counties to the west. As tables 7 and

                8 indicate only the most catastrophic storm will cause damages

                of over 25%, and that would only be to mobile homes.

                Gadsden County borders both the Ochlocknee and Apalachicola

                rivers. Under severe conditions there will be substantial

                flooding around these rivers,       fortunately most of the

                population lies out of the one hundred-year flood plain.

                                        Recommendation

                It is likely that Gadsden County will never have to rely on

                FEMA's temporary housing program, but in the event that coastal

                counties in the region suffer tremendous damage, the County

                should devise a program that would accommodate those victims

                that come from  the coastal counties counties.

                                          GULF COUNTY

                Geographically Gulf County lies in a similar storm probability

                track as Franklin County, but economically there are more

                resources to counter the post hardships of the storm. By no

                means is the County financially well off, and regardless of the

                                             55

                 intensity of the hurricane substantial housing aid still must

                 be rendered. Potential need for temporary housing units may

                 approaches   3500 units under the most severe circumstances,

                 which in this case is scenario U. Port St. Joe, the major

                 populated area in Gulf County, is buffered         from the full

                 intensity of a storm by Cape San Blas to the southwest and

                 the mainland to the south southeast.

                                          Recommendation

                 Gulf County must develop a program that would assist FEMA in

                 its effort to aid them with temporary housing if a major storm

                 were to occur. It is doubtful that under the worse

                 circumstances enough units would be available. In this event

                 the County must look inland for assistance.

                                          JACKSON COUNTY

                 As tables 12 and 13 show, Jackson County would suffer little if

                 any structural damage under any storm scenario. The County lies

                 further inland than any other within the Region, so even if a

                 major hurricane were to hit the gulf coast the distance it

                 would travel over land would be a factor in reducing its

                 severity by the time it reached the County. Under the worse

                 circumstances,     mobile homes would suffer extensive wind

                 damage, but the County should have the capacity to house those

                 whose mobile homes were damaged or destroyed.

                                               56

                                        Recommendation

                Jackson County, like Gadsden, probably will never have to rely

                on FEMA's temporary housing programs. As mentioned previously,

                the County should look for methods of accommodating homeless

                victims from coastal counties that have suffered extensive

                residential damage.

                                       JEFFERSON COUNTY

                Phase One of the Apalachee Region Hurricane Loss study did not

                include any surge damage estimates based on hurricane scenarios

                for Jefferson County. There is no private land ownership in the

                vulnerable southern portion of the county, which is federal

                land, and the population is sparse in the less vulnerable

                northern section of the county. The only agglomeration of

                people is in the Monticello area f ar inland. In the event of a

                catastrophic storm, small populations along the Aucilla and

                Wacissa rivers may suffer substantial flooding and be in need

                of housing assistance.

                                        Recommendation

                Limited wind and rain damage to residential structures may

                occur in Jefferson County. The County will likely need

                assistance if a hurricane with heavy winds were to strike, due

                                              57

                 to the large number of mobile homes in the county.

                                           LEON COUNTY

                 Leon County is the only urbanized County in the region, so even

                 though it is located inland, there are a large quantity of

                 dwelling units vulnerable to heavy winds and rainfall that

                 would accompany a major storm. Tables 14 and 15 show that under

                 the most severe circumstances damage to dwelling units will be

                 between 25 and 50 percent. This means that under the worse

                 scenario moderate, not extensive structural repair will be

                 required.

                                         Recommendation

                 In relation to the rest of the region, Leon County has better

                 financial capabilities to effectively counter storm related

                 damage. Because there is a low probability of a major storm

                 reaching Leon County, there should be a program developed to

                 assist in housing those in need of temporary shelter from the

                 coastal counties.

                                         LIBERTY COUNTY

                 Liberty is the least populated county in the region. Most of

                 the population lies in Bristol, a town in the central portion

                 of the County along the Apalachicola River. Tables 16 and 17

                                              58

                 show that Liberty County will need only 77 temporary housing

                 units from FEMA in the event of a major storm. Heavy rainfall

                 and floodwaters may cause substantial damage in the Bristol

                 area.

                                          Recommendation

                 Although the charts show Liberty County will not need a great

                 deal of Federal Housing Assistance, the limited resources of

                 the residents have to be considered. The population probably

                 lacks the resources to repair damage of less than 25% that does

                 not show up on the tables. In Liberty County a fast home repair

                 program.would be more  useful than a temporary housing program.

                                          WAKULLA COUNTY

                 Unlike Gul  f and Franklin Counties,      Wakulla County has no

                 barrier islands to buffer the initial devastation of a

                 hurricane.  Ocean-front housing units are extremely vulnerable

                 in the county as shown under the weakest storm scenario in

                 table 18. Because an appropriate storm simulation was

                 unavailable from phase one of the Hurricane Loss Study the

                 effects that a category 3,4 or 5 hurricane will have on the

                 region is unknown, however in reviewing losses from level 1 and

                 2 storms, it can be surmised that nearly all coastal dwelling

                 units will be devastated by very high storm surge and flooding.

                                               59

                                         Recommendation

                 Wakulla County will have to be allocated immediate temporary

                 housing provisions in the event of any hurricane. In instances

                 where all housing units in a region are destroyed,       it is

                 unlikely that FEMA could provide the necessary accommodations,

                 however the population in Wakulla County is still relatively

                 low, and can conceivably be covered through effective local

                 government coordination.

                                              60

                                      INDIVIDUAL ASSISTANCE

             Individual assistance includes provisions for families and small

             businesses who qualify. This assistance is allocated in the form

             of grants and loans used for agricultural assistance, replacement

             of personal property, reduction of economic losses and

             reestablishing places of employment. This section examines        the

             need for individual assistance in the Apalachee Region,           and

             briefly analyze two programs, (Individual and Family Grants and   Low

             Interest Disaster Loans) that provide that assistance.

             A. Individual and Family Grants

                Several agencies are involved in the administration of

                Individual and Family Grants. Finances are divided into a 75%

                Federal share and a 25% State share. The assistance available

                for qualified applicants ranges from food stamp allocation to

                the administration of legal counsel, all of which were examined

                in the Federal Assistance Program section.

             B. Low Interest Disaster Loans

                Low interest disaster assistance loans are usually allocated to

                those who have experienced losses to their economic stability,

                rather than personal necessities. Qualifiers include those who

                have experienced crop damage, or damage to their employment

                source. Again, the assistance available was examined in the

                                              61

                                                                       TABLE 20

                                                  NFIP COVERAGE FOR THE CDXIES OF THE APALACHEE REGION

                                                       POLICIES                              WMAGE

                       COUNTY               RESIDENTIAL        COMMERCIAL        RESIDENTIAL            COMMERCIAL              TOTAL

                       CALHOUN                      7                 1            $236,700               $10,000                 $152,600

                       GULF                       143                22          S14,70i,0li            $1,515,400             W,V6,400

                       GADSDEN                      4                 1            W000                   $200,000                $316,0

                       JACKSON                      a                 4            $164,400               $325,700                $490,100

                       FRANKLIN                   444                29          $27,540,700            $2,463,300             $30,004,000

                       LEON                       135                16           $7,055,300            $1,132,800              $8.188,100

                       LIBERTY                      0                 1                    0              $25,000                  $25,000

                       WAKULLA                    126                 6           $6,209,800              $335,900              $6,545.700
                       JEFFERSON                    0                 1                    0              $25,0'0'0                $25,000

                                                                           62

                                                           GRAPH 1
                                        TOTAL NFIP COVERAGE
                        32-                           APALACHEE REGION
                        30-

                        28-

                        26-

                        24-

                        22-

                        20-

                        18-

                 cr- o
                 W -=   16 -
                 >=
                 0:2    14-

                        12-

                        10-

                         8-

                         6 -

                         4-

                         2

                         0
                             CAL     GUL     GAD      JAC     FRK     LEO      LIB    WAK      J@F

                                                            COUNTY
                                         RESIDENTIAL                   COMMERCIAL

                                                                                       TABLE 21

                                                                   ESTIMATED STRUCTURAL LOSSES BY HURRICANE SCENERIO

                                      CALHOUN COUNTY                                                                      JACKSON COUNTY

                 SCENARIO       RESIDENTIAL            COMMERCIAL             TOTAL            SCENARIO                   RESIDENTIAL        COMMERCIAL        TOTAL

                      H            $363,279              $40,982              $404,361              A                     $2,473,490           $264,497        $2,737,985
                      M            $118,475              $7,879               $26,354               G                     $652,ODD             $33,631          $685,631

                      R            $2, 128,895         $209,681            $2,338,576               D                     $8,224,648         $1, 180,389       $9,404,037

                      T            $2,964,512          $429,468            $3,393,980               T                     $11,435,380        $1,663,242        $13,098,622

                      U            $6,649,371         $2,036,347           $8,685,717               U                     $25,440,550        $3,790,296        $29,230,846

                                      FRANKLIN COUNTY                                                                     LEON COUNTY

                 SCENARIO          RESIDENTIAL         COMMERCIAL             TOTAL            SCENARIO                   RESIDENTIAL        COMMERCIAL         TOTAL

                      p            $9,398,160          $1,381,709             $10,779,869    *      p                     $25,165,390        $4,345,390        $29,510,990
                                   $13,003,697         $2,069,684             $15,073,381    *      B                     $46,215,350        $7,961,000        $54,176,350

                      N            $24,770,821         $3,465,951             $28,236,772    *      C                     $71,300,000        $12,205,OW        $93,505,000

                      0            $56,929,816         $5,101,752             $62,031,568    *      a                     $176,05,000        $31,495,250       $207,640,250

                      1            $33,971,07          S4,364J12              $38,335,529    *      1                     $537,350,000       $92,000,000       $537,350,WD

                                     GULF COUNTY                                                                          LIBERTY COUNTY

                 SCENARIO          RESIDENTIAL         COMMERCIAL             TOTAL            SCENARIO                   RESIDENTIAL        COMMERCIAL         TOTAL

                      v            $1,588,260            sio5, 126            $1,693,386            H                      $151 1 000          $10,200

                      N            $3,260,8W             $284,551             $3,545,351            G                      $263,840            $21,350          $285, i9o

                      S            $59,495,000         $3,070,235             $62,565,235           L                        $55,380            $ 1 1050          $56,430

                      a            $12,185,223           $510,228             $12,695,451           0                      $518,350            $44,050          $562,400

                      U            $70,223,202         $4,727,251             $74,950,453           1                     $4,450,000           $135,450        $4,585,450

                                    GADSDEN COUNTY                                                                        WAKULLA COUNTY

                 SCENARIO          RESIDENTIAL         COMMERCIAL             TOTAL          f SCENARIO                   RESIDENTIAL        COMMERCIAL-        TOTAL

                      H            $2,020,332            $iB7,57i             $2,207,903     *      A                     $3,105,000           $368,500        $3,473,500
                      G            $4,590,356            $379,2&q             $4,969,645     *      B                     $13,450,000        $1,627,355        $15,077,355
                      S            $5,993,85Z            $550,997             $6,444,849     *      F                     $2,056,395           $132,650        $2,189,045
                      0            $6,352,366            $551,587             $6,903,975     *      a                     $7,345,605           $242,565        $7,588,170
                      1            $31,585,940         $2,732,533             $34,318,473    #      i                     S17,48,590         $1,269,427        $18,418,017

                                                                                       64

                                                     TABLE 22

                                         PERCENT OF INSURED STRUCTURES

                                                 APALACHEE REGION

                                                 RESIDENTIAL

                            COUNTY       STRUCTURES      POLICIES*          PCT.*

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

                            CALHOUN            3190          1995          62.5

                            FRANKLIN           4477           888          19.8

                            GADSDEN           10,388         6493          62.5

                            GULF               4297           246            6.6

                            JACKSON           12,121         7575          62.5

                            JEFFERSON         3,500              0            0
                            LEON              52,183        32,614         62.5
                            LIBERTY           1,480           925          62.5
                            WAKULLA           3,996           252          62.5

                            *ADJUSTED FOR INLAND COUNTIES

                                                 COMMERCIAL

                            COUNTY       STRUCTURES       POLICIES*       PCT.*

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

                            CALHOUN            193            120         62.5

                            FRANKLIN           340              58           17

                            GADSDEN            464            290         62.5

                            GULF               298              44        14.7

                            JACKSON            904            565         62.5

                            JEFFERSON            28               2           7

                            LEON              3951           2469         62.5

                            LIBERTY              17             11        62.5

                            IJAKULLA             98             12        12.2

                            *ADJUSTED FOR INLAND    COUNTIES

                                                        6S

                                                                                    ..TABLE 23

                                                                         TOTAL INDIVIDUAL ASSISTANCE NEEDS

                                                                     BY STORM SCENERIO IN THE APALACHEE REGION

                                                        RESIDENTIAL                                     COMMERCIAL

                                               STRUCTURAL       PCT.        UNINSURED      STRUCTURAL      PCT.       UNINSURED        TOTAL ASSISTANCE

                      COUNTY SCENARIO             LOSS      UNINSURED        LOSS             LOSS       UNINSURED        Los            NEEDED

                      CALl"          H           $363,279    27.50%         $?91901           00,992       27.50%         $11,270        $111,171
                                     M           $118,475    27.50%         $32,581           $7,879       27.502         $2,167         $34,747

                                     R         $2,128,895    27.50%         $585,446          $209,691     27.501         $57,662        $03,iOg
                                     T         $2,694,512    27.50%         $85,240           $429,468     27.50%         W8,104       $3,897,856
                                     U         $6,643,710    27.501      $1,827,020        $2,036,347      V.50%          $5591"5      $2,387,05

                      FRANKLIN       P         $9,398,160    80.00%      $7,518,528        $1,381,709      83.00%     $1,146,818       $8,665,346

                                     M         $13,003,697   80.00%      $10,402,958       $2,069,684      83.001     $1,717,837       $12,120,796

                                     N         $24,770,821   80.OOX      $19,816,657       S3,465,95i      83.00%     $2,876,739       $22,693,396
                                     0         $56,929,816   80.00%      $45,543,853       $5,41,752       83.00%     $4,234,454       $49,728,307
                                     1         $33,971,417   80.002      $27,177,134       $4,364,142      93.OOX     S3,622,EQ        $30,799,347

                      GADSDEN        H         $2,020,332    27.50%         $555,591          $187,571     27.50%         $51,582        $W7,i73
                                     G         $4,590,356    27.50%      $1,262,348           $379,289     27.50%         $104,304     $1,366,652
                                     s         $5,893,852    27.50%      $1,620,809           $550,997     27.50%         $151,524     $1,772,333

                                     a         S6,352,38&    27.50%      $1,746,906           $551,587     27.50%         $151,686     $1,898,592

                                     1         $31,585,940   27.50%      $8,686,134        $2,732,533      27.50%         $751,446     $9,437,580

                      GULF           U         $1,588,260    93.30%      $1,481,946           $105,126     95.30%         $89,672      $1,571,519

                                               $3,260,800    93.30%      $3,042,326           $2a4,55i     85.30%         $242,770     $3,285,046

                                     S         $59,495,000   93.30%      $55,508,836       $3,070,235      85.30%     $2,08,910        $58,127,745

                                     a         $12,185,233   93.30%      $il,368,813          $510,228     85.30%         $435,224     $11,804,037

                                     U         $70,233,202   93.30%      $65,518,266       $4,727,251      85.301     $4,041,799       $69,560,065

                      JACKSON        A         $2,473,490    27.501         VM,210            $264,497     27.50%         $72,737        $752,947

                                     G           $652,000    27.50%         $179,300          $33,631      27.50%         $9,248         $188,549

                                     D         $8,224,648    27.50%      $2,586,385        $1,180,389      27.50%         $324,606     $2,586,385

                                     T         $11,435,380   27.50%      $3,144,740        $1,663,242      27.50%         $457,393     $3,602,122

                                     N         $25,440,550   27.50%      $6,996,51         $3,790,296      27.50%     $1,042,331       $8,038,M2

                                                                                    66

                                                                                          TABLE 23

                                                                              TOTAL INDIVIDUAL ASSISTANCE NEEDS

                                                                          BY STORM SCENERIO IN THE APALACHEE REGION

                                                            RESIDENTIAL                                      COMMERCIAL

                                                   STRUCTURAL       PCT.        UNINSURED       STRUCTURAL      PCT.        UNINSURED        TOTAL ASSISTANCE

                         COUNTY SCENARIO              LOSS      UNINSURED         LOSS             LOSS       UNINSURED        LOSS            NEEDED

                         LEON            p       $25,165,390     27.50%       $4,345,600        $1,195,040      27.50%      $1, 195,040      $8,115,22

                                         B       $46,25,350      27.50%       $7,961,000        $2,189,275      27.50%      $2,169,275       $14,987,496
                                         C       $77,300,000     27.50%       $12,205,000       $3,356,375      Z7.501      17:356,375       $24,03,675
                                         a      $183,356,654     27.50%       $31,495,250       $8,661,194      27.50%      $3,356,375       $57,101,069

                                         1      $445,350,000     27.50%       $92,ODO,OOO      $25,300,000      27,50%     $25,300,000     $147,721,250

                         LIBERTY         H           $151,000    27.50%           $41,525          $10,300      27,50%          $2,833          $444,358
                                         G           $263,840    27.50%           $19,082          $21,350      27,50%          $5,871           $24,953

                                         L            $55,380    27.50%           $15,229            $1,050     27.50%             $288          $15,518

                                         a           $518,350    27.50%          $152,546          $44,050      27.50%         $12,113          $154,659

                                         1         $4,450,000    27.50%       $1,223,550          $135,450      27.50%         $36,987       $1,267,935

                         WAKULLA         A         $3,105,000    93.70%       $2,909,385          $368,500      87.80%        $322,094       $3,231,479

                                         B       $13,450,000     93.70%       $12,602,650       $1,627,355      87.80%      $1,428,818       $14,031,468

                                         F         $2,056,395    93.70%       $1,962,942          $152,650      87.80%      $2,276,242       $2,276,242

                                         a         $7,345,605    93.70%       $6,882,832          $242,565      87.802        $212,972       $7,095,804

                                         1       $17,148,590     93.70%       $16,068,229       $1,269,427      87.80%      $1,114,556       $17,182,786

                                                                                          67

                 Federal Assistance Program Section.

              C. Interpretation of Tables 20 through 23

                 To calculate the amount of individual assistance needed under

                 these programs, the scenarios used in the Temporary Housing

                 Section are utilized to simulate damage estimates. Phase one of

                 The AR,@.LAS@t @@Xion Hurricane Loss Study determined the

                 monetary residential and commercial damage estimates based on

                 different storm scenarios. This study selected five storm

                 scenarios of varying intensity for each county, and summed up

                 the amount of commercial and residential damage they would

                 create.  The amount of insurance to cover the damage was

                 assessed and subtracted from the dama     ge sum to obtain the

                 amount of individual assistance that would be required based on

                 each scenario for the counties in the region.

                                            Table 20

                 Table 20 indicates the number of flood insurance policies and

                 monetary coverage for residential and commercial structures in

                 each county of the Apalachee region. The Co.unties in the

                 Apalachee Region are relatively new to the regular phase of the

                 National Flood Insurance Program, so the number of policies and

                 amount of coverage in relation to the rest of the state is

                 relatively low. The Flood Insurance Program covers only water

                 induced damage, thus the number of policies for inland counties

                                              68

                are extremely low. Only structures located in the 100-year

                floodplain are required to have flood insurance.

                                           Table 21

                Table 21 indicates the amount of monetary damage that would

                occur to both residential and commercial structures based on

                the same hurricane scenarios used to determine temporary

                housing needs. As mentioned in the previous section, SPLASH

                models, which do not account for wind and rainfall induced

                damage,  were used to obtain these figures,       so the total

                structural damage for inland counties will be substantially

                higher in the event of a major storm.

                                           Table 22

                Table 21 in dicates the adjusted ratio of insurance policies to

                actual residential and commercial structures in each county of

                the Apalachee Region. Inland counties are not extensively

                covered under the NFIP, so for purposes of this report an

                insurance rate of 62.5% was used. This figure is adjusted

                down 10% from the standard figure used by the General

                Reinsurance Co. Report. This adjustment is an inferential

                estimation based on income of the residents in the region and

                the likelihood that they cannot afford substantial amounts of

                homeowners insurance.

                                             69

                                              Table 23

                  Table 23 represents the total amount of individual assistance

                  that will be required based on the selected storm simulations

                  and the calculation of the previously explained formula. The

                  figures for individual assistance needs range from only $15,000

                  under a small hurricane scenario in Liberty County, to

                  $150,000,000 in Leon County in a catastrophic hurricane

                  situation. If these figures are appropriately adjusted upward,

                  the damage potential becomes astronomical. Upon relating these

                  figures to the limited resources of the residents of the

                  Apalachee Region, it becomes apparent     that local governments

                  must extensively promote the NFIP in there counties.

                                                70

                                     PUBLIC ASSISTANCE

             Public assistance 13 available for communities who have surfer    d

             extensive public facility damage as a result of-a major hurricane.

             Public assistance eligibility depends upon    whether the damaged

             facilities create a negative impact on the public's health, safety

             and welfare, and the financial ability of that community to

             repair the damage.    Funds for public assistance are usually

             available in the form of Community Facilities Loans. these loans

             are allocated on a cost sharing basis between state and federal

             government.  The federal government will provide 75% of the

             assistance and the state 25%. This section quantifies the need for

             public assistance based on replacement costs for the following

             categories: water facilities; wastewater facilities; electric

             utilities; transportation facilities; nursing homes; hospitals and

             government owned facilities.

             A. Replacement Costs

                Most public facility replacement costs are provided by FEMA.

                Limitations are placed on grants so that facilities are

                restored only to pre-event condition.      All public service

                facilities may be covered by the programs previously mentioned

                in the Federal Assistance Programs Section.

                                             71

              B. Methodology

                 The methodology for determining replacement costs of public

                 facilities in each county differs from the methodology used in

                 determining individual assistance needs. Phase One of the

                 Hurricane Loss Study listed the sum value and location of

                 various facilities, but did not estimate damage based on storm

                 scenarios. In determin-ing facility replacement costs, the

                 value of each different facility was summed. That monetary

                 figure was disaggregated into percentages from 10 to 100 in

                 intervals of ten. This method may be of more use than basing

                 damage estimates on storm scenarios, because an actual storm

                 will never accurately simulate a model scenario. An assessor

                 can dete rmine the amount of damage (for example) to hospitals.

                 If he estimates that all hospitals in Leon County are damaged

                 by 30%, the corresponding dollar figure is available in the

                 following table under Leon County in the category Hospitals.

                 The amount of monetary assistance required can than be

                 distributed by the various federal assistance programs.

              C. Water Facilities

                 Immediate restoration of   water supply facilities is 'critical

                 to a community in its post event condition. People failing to

                 store adequate quantities of potable water have to rely on

                 treating water themselves.' Insufficient treatment can lead to

                 adverse health effects to much of the population, which can

                                               72

                  further cripple a region after a storm. Table 24 estimates

                  replacement costs to water facilities based on the percentage

                  damaged.

                                                 Table 24

                                   WATER FACILITY REPLACEMENT COSTS

                     WAKULLA COUNTY                                      LEON COUNTY

                   DAMAGE           COST                              DAMAGE         COST

                   10%            $201,800                            10%           $958,663

                   20%            $403,600                            20%       $1,917,326

                   30%            $605,400                            30%       $2,875,989

                   40%            $807,200                            40%       $3,834,652

                   50%          $1,009,000                            50%       $4,793,315

                   60%          $1,210,800                            60%       $5,751,978

                   70%          $1,412,600                            70%       $6,710,641

                   80%          $1,614,400                            80%       $7,669,304

                   90%          $1,816,200                            90%       $8,627,967

                  100%          $2,018,000                            100%      $9,586,630

                                                    73

                      GADSDEN COUNTY                                   JACKSON COUNTY

                    DAMAGE          COST                             DAMAGE         COST

                    10%            $662,910                          10%          $399,120

                    20%          $1,325,820                          20%          $798,240

                    30%          $1,988,730                          30%       $1,197,360

                    40%          $2,651,640                          40%       $1,596,480

                    50%          $3,314,550                          50%       $1,995,600

                    60%          $3,977,460                          60%       $2,394,720

                    70%          $4,640,370                          70%       $2,793,840

                    80%          $5,303,280                          80%       $3,192,960

                    90%          $5,966,190                          90%       $3,592,208

                    100%         $6,629,100                          100%      $3,991,200

                      JEFFERSON COUNTY                                LIBERTY  COUNTY

                    DAMAGE           COST                            DAMAGE          COST

                    10%              $93,620                         10%            $63,400

                    20%            $187,240                          20%          $126,800

                    30%            $280,060                          30%          $190,200

                    40%            $374,480                          40%          $253,600

                    50%            $468,100                          50%          $317,000

                    60%            $561,200                          60%          $380,400

                    70%            $655,340                          70%          $443,800

                    80%            $748,960                          80%          $507,200

                    90%            $842,580                          90%          $570,600

                    100%           $936,200                          100%         $634,000

                                                    74

                     GULF COUNTY                                     FRANKLIN COUNTY

                   DAMAGE           COST                             DAMAGE         COST

                   10%            $110,960                           10%         $227,082

                   20%            $221,920                           20%         $454,164

                   30%            $332,880                           30%         $681,246

                   40%            $443,840                           40%         $908,328

                   50%            $554,800                           50%       $1,135,410

                   60%            $665,760                           60%       $1,362,492

                   70%            $776,720                           70%       $1,589,574

                   80%            $887,680                           80%       $1,816,656

                   90%            $998,640                           90%       $2,043,738

                   100%          $1,109,600                       100%        $2,270,820

                                              CALHOUN COUNTY

                                           DAMAGE             COST

                                           10%              $89,610

                                           20%            $179,220

                                           30%            $268,830

                                           40%            $358,440

                                           50%            $448,050

                                           60%            $537,660

                                           70%            $627,270

                                           80%            $716,880

                                           90%            $806,490

                                          100%            $896, 100

                                                   75

                D. Waste Water Facilities

                    Storm damage to waste water treatment plants can               lead to

                    widespread sanitation problems. Untreated wastes, loose as a

                    result of flooding, can cause outbreaks of various negative

                    health affects. The immediate restoration of waste water

                    facilities is crucial to a county during its post event

                    condition. Table 25 determines the cost of repairing each

                    county's sewage treatment facility by percentage and monetary

                    value.

                                                   Table 25

                                 WASTE WATER FACILITY REPLACEMENT COSTS

                        WAKULLA COUNTY                                    LEON COUNTY

                     DAMAGE             COST                        DAMAGE             COST

                     10%          $163,000                          10%         $4,708,000

                     20%          $326,000                          20%         $9,416,000

                     30%          $489,000                          30%       $14,124,000

                     40%          $652,000                          40%       $18,832,000

                     50%          $815,000                          50%       $23,540,000

                     60%          $978,000                          60%       $28,248,000

                     70%        $1,141,000                          70%       $32,956,000

                     80%        $1,300,400                          80%       $37,664,000

                     90%        $1,467,000                          90%       $42,372,000

                    100%        $1,630,000                          100%      $47,080,000

                                                     76

                     GADSDEN COUNTY                                   JACKSON COUNTY

                    DAMAGE            COST                         DAMAGE             COST

                    10%           $952,000                         10%        $1,472,000

                    20%        $1,904,000                          20%        $2,944,000

                    30%        $2,856,000                          30%        $4,416,000

                    40%        $3,808,000                          40%        $5,888,000

                    50%        $4,760,000                          50%        $7,360,000

                    60%        $5,712,000                          60%        $8,832,000

                    70%        $6,664,000                          70%       $10,304,000

                    80%        $7,616,000                          80%       $11,776,000

                    90%        $8,568,000                          90%       $13,248,000

                   100%        $9,520,000                         100%       $14,720,000

                       JEFFERSON COUNTY                               LIBERTY COUNTY

                    DAMAGE             COST                        DAMAGE             COST

                    10%          $175,000                          10%            $13,000

                    20%          $350,000                          20%            $26,000

                    30%          $525,000                          30%            $39,000

                    40%          $700,000                          40%            $52,000

                    50%          $875,000                          50%            $65,000

                    60%        $1,050,000                          60%            $78,000

                    70%        $1,225,000                          70%            $91,000

                    80%        $1,400,000                          80%            $104,000

                    90%        $1,575,000                          90%            $117,000

                    100%       $1,750,000                          100%           $130,000

                                                    77

                       GULF COUNTY                                FRANKLIN COUNTY

                    DAMAGE           COST                       DAMAGE            COST

                    10%         $909,000                        10%           $340,600

                    20%      $1,818,000                         20%          $681,200

                    30%      $2,727,000                         30%       $1,021,800
                    40%      $3,363,600                         40%       $1,362,400
                    50%      $4,545,000                         50%       $1,703,000
                    60%      $5,454,000                         60%       $2,043,600
                    70%      $6,363,000                         70%       $2,384,200
                    80%      $7,272,000                         80%       $2,724,800
                    90%      $8,181,000                         90%       $3,065,400

                   100%      $9,090,000                        100%       $3,406,000

                                            CALHOUN COUNTY

                                         DAMAGE            COST

                                         10%             $166,000

                                         20%             $332,000

                                         30%             $498,000

                                         40%             $664,000

                                         50%             $830,000

                                         60%             $996,000

                                         70%          $1,162,000

                                         80%          $1,328,000

                                         90%          $1,494,000

                                        100%          $1,660,000

                                                 78

              E. Public Utilities

                 An effective post disaster electrical facility replacement plan

                 can reduce a municipality's post storm recovery time. Table 26

                 examines the electric facility replacement costs for the

                 counties in the Apalachee Region.

                                              Table 26

                               ELECTRICAL FACILITY REPLACEMENT COST

                       WAKULLA COUNTY                           LEON COUNTY

                  DAMAGE               COST              DAMAGE                 COST

                  10%              $803,923              10%             $26,480,482

                  20%           $1,607,846               20%             $52,960,934

                  30%           $2,411,769               30%             $79,441,445

                  40%           $3,215,692               40%          $105,921,868

                  50%           $4,019,615               50%          $132,402,409

                  60%           $4,823,538               60%          $158,882,890

                  70%           $5,627,461               70%          $185,  363,372

                  80%           $6,431,384               80%          $211,843,736

                  90%           $7,235,307               90%          $238,324,336

                 100%           $8,039,230               100%         $264,804,818

                                                79

                          GADSDEN COUNTY                           JACKSON COUNTY

                    DAMAGE                 COST              DAMAGE                   COST
                    10%               $886,850               10%              $9,718,549
                    20%            $1,773,700                20%             $19,437,098

                    30%            $2,660,551                30%             $29,155,647
                    40%            $3,547,400                40%             $38,874,196

                    50%            $4,434,251                50%             $48,592,746

                    60%            $5,321,102                60%             $58,311,294

                    70%            $6,207,951                70%             $68,029,844

                    80%            $7,094,800                80%             $77,748,392

                    90%            $7,981,652                90%             $87,466,942

                    100%           $8,868,502                100%            $97,185,491

                         JEFFERSON COUNTY                           LIBERTY COUNTY

                     DAMAGE                 COST              DAMAGE                COST

                     10%               $574,776               10%               $56,826

                     20%            $1,149,553                20%             $113,652

                     30%            $1,724,329                30%             $170,477

                     40%            $2,299,106                40%             $227,304

                     50%            $2,873,882                50%             $284,127

                     60%            $3,448,658                60%             $340,954

                     70%            $4,023,345                70%             $397,779

                     80%            $4,598,212                80%             $454,608

                     90%            $5,172,988                90%             $511,430

                    100%            $5,747,764                100%            $568,255

                                                    80

                         GULF COUNTY                             FRANKLIN COUNTY

                    DAMAGE                COST                DAMAGE               COST

                    10%            $1,035,025                 10%              $369,069

                    20%            $2,070,050                 20%              $738,138

                    30%            $3,105,076                 30%          $1,107,207

                    40%            $4,140,100                 40%          $1,476,276

                    50%            $5,175,127                 50%          $1,845,345

                    60%            $6,210,152                 60%          $2,214,414

                    70%            $7,245,178                 70%          $2,583,482

                    80%            $8,280,200                 80%          $2,952,552

                    90%            $9,315,229                 90%          $3,321,620

                    100%           $10,350,254                100%         $3,690,689

                                              CALHOUN COUNTY

                                          DAMAGE              COST

                                          10%              $85,250

                                          20%            $175,000

                                          30%            $255,750

                                          40%            $350,000

                                          50%            $426,250

                                          60%            $511 500

                                          70%            $596,750

                                          80%            $700,000

                                          90%            $767,250

                                          100%           $852,500

                F. Transportation Facilities

                   Although not as important in the Apalachee Region, the

                   revitalization of transportation facilities is important to an

                   area to move possible assistance supplies and people in and out

                   the disaster area. Transportation facilities do not include

                   road networks,      only structures such as airports and bus

                   stations.     Table 27 examines the replacement costs for

                   transportation facilities in the Apalachee Region.

                                                  Table 27

                                TRANSPORTATION FACILITY REPLACEMENT COST

                        WAKULLA COUNTY                                  LEON COUNTY

                    DAMAGE              COST                        DAMAGE             COST

                    10%              $9,000                         10%          $200,000

                    20%            $18,000                          20%          $400,000

                    30%            $27,000                          30%          $600,000

                    40%            $36,000                          40%          $800,000

                    50%            $45,000                          50%        $1,000,000

                    60%            $54,000                          60%        $1,200,000

                    70%            $63,000                          70%        $1,400,000

                    80%            $72,000                          80%        $1,600,000

                    90%            $81,000                          90%        $1,800,000

                   100%            $90,000                          100%       $2,000,000

                                                     82

                      GADSDEN COUNTY                                 JACKSON COUNTY

                    DAMAGE            COST                          DAMAGE          COST

                    10%           $24,000                           10%           $6,210

                    20%           $48,000                           20%         $12,420

                    30%           $72,000                           30%         $18,630

                    40%           $96,000                           40%         $24,840

                    50%          $120,000                           50%         $31,050

                    60%          $144,000                           60%         $37,260

                    70%          $168,000                           70%         $43,470

                    80%          $192,000                           80%         $49,680

                    90%          $216,000                           90%         $55,890

                    100%         $240,000                           100%        $62,100

                    JEFFERSON COUNTY                                   LIBERTY COUNTY

                  JEFFERSON COUNTY HAS                              LIBERTY COUNTY HAS

                  NO TRANSPORTATION                                 NO TRANSPORTATION

                  FACILITIES                                        FACILITIES

    'A

                                                   83

                           GULF COUNTY                                 FRANKLIN COUNTY

                      DAMAGE             COST                          DAMAGE      COST

                      10%           $10,162                            10%         $106

                      20%           $20,324                            20%         $212

                      30%           $30,486                            30%         $318

                      40%           $40,648                            40%         $424

                      50%           $50,810                            50%         $530

                      60%           $60,972                            60%         $636

                      70%           $71,134                            70%         $742

                      80%           $81,296                            80%         $848

                      90%           $91,458                            90%         $954

                     100%           $101,620                          100%        $1,060

                                              CALHOUN COUNTY

                                           DAMAGE              COST

                                           10%             $16,100

                                           20%             $32,200

                                           30%             $48,300

                                           40%             $64,400

                                           50%             $80,500

                                           60%             $96,600

                                           70%            $112,700

                                           80%            $128,800

                                           90%            $144,900

                                           100%           $161,000

                                                    84

              G. Nursing Homes

                  Nursing homes provide care for patients whose needs are unique.

                  Nursing home residents are difficult to evacuate because they

                  require special care and in some cases untransportable

                  machinery. Table 28 exhibits the damage estimates by percentage

                  of nursing homes in the counties of the Apalachee Region.

                                                 Table 28

                                     NURSING HOME REPLACEMENT COST

                         WAKULLA COUNTY                                LEON COUNTY

                    DAMAGE                COST                     DAMAGE           COST

                    10%              $370,000                      10%      $1,290,000

                    20%              $740,000                      20%      $2,580,000

                    30%           $1,110,000                       30%      $3,870,000

                    40%           $1,480,000                       40%      $5,160,000

                    50%           $1,850,000                       50%      $6,450,000

                    60%           $2,220,000                       60%      $7,740,000

                    70%           $2,590,000                       70%      $9,030,000

                    80%           $2,960,000                       80%      $1,032,000

                    90%           $3,330,000                       90%      $1,160,000

                    100%          $3,700,000                       100%     $1,290,000

                                                   8S

                        GADSDEN COUNTY                                JACKSON COUNTY

                     DAMAGE               COST                      DAMAGE           COST

                     10%             $180,000                       10%         $710,000

                     20%             $360,000                       20%      $1,420,000

                     30%             $540,000                       30%      $2,130,000

                     40%             $720,000                       40%      $2,840,000

                     50%             $900,000                       50%      $3,550,000

                     60%           $1,080,000                       60%      $4,260,000

                     70%           $1,260,000                       70%      $4,970,000

                     80%           $1,440,000                       80%      $5,680,000

                     90%           $1,620,000                       90%      $6,390,000

                     100%          $1,800,000                       100%     $7,100,000

                      JEFFERSON COUNTY                               LIBERTY COUNTY

                   DAMAGE                COST                    Liberty County has no

                   10%             $180,000                     nursing home facilities.

                   20%             $360,000

                   30%             $540,000

                   40%             $720,000

                   50%             $900,000

                   60%,         $1,080,000

                   70%          $1,260,000

                   80%          $1,440,000

                   90%          $1,620,000

                   100%         $1,800,000

                                                    86

                      GULF COUNTY                                   FRANKLIN COUNTY

                   DAMAGE                COST                      DAMAGE        COST

                   10%              $370,000                       10%        $180,000

                   20%              $740,000                       20%        $360,000

                   30%           $1,110,000                        30%        $540,000

                   40%           $1,480,000                        40%        $720,000

                   50%           $1,850,000                        50%        $900,000

                   60%           $2,220,000                        60%      $1,080,000

                   70%           $2,590,000                        70%      $1,260,000

                   80%           $2,960,000                        80%      $1,440,000

                   90%           $3,330,000                        90%      $1,620,000

                   100%          $3,700,000                        100%     $1,800,000

                                              CALHOUN COUNTY

                                           DAMAGE              COST

                                           10%            $380,000

                                           20%            $760,000

                                           30%         $1,140,000

                                           40%         $1,520,000

                                           50%         $1,900,000

                                           60%         $2,280,000

                                           70%         $2,600,000

                                           80%         $3,040,000

                                           90%         $3,420,000

                                           100%        $3,800,000

                                                    87

               H. Hospitals

                  In the event a major hurricane has caused any degree of

                  personal injury or fatalities, a hospital must be at peak

                  operating capacity.     Table   29 gives   a cost by percentage

                  estimate of hospitals in the Apalachee Region.

                                               Table 29

                                     HOSPITAL REPLACEMENT COSTS

                       WAKULLA COUNTY                             LEON COUNTY

                    There are no hospitals                    DAMAGE            COST

                    in Wakulla County                         10%      $17,380,000

                                                              20%      $34,760,000

                                                              30%      $52,140,000

                                                              40%      $69,520,000

                                                              50%      $86,900,000

                                                              60%     $104,280,000

                                                              70%     $121,660,000

                                                              80%     $139,040,000

                                                              90%     $156,420,000

                                                              100%    $173,800,000

                                                 88

                       GADSDEN COUNTY                                 JACKSON COUNTY

                  DAMAGE                COST                      DAMAGE            COST

                 10%            $41,000,000                      10%         $3,100,000

                 20%            $82,000,000                      20%         $6,200,000

                 30%          $123,000,000                       30%         $9,300,000

                 40%          $164,000,000                       40%       $12,400,000

                 50%          $205,000,000                       50%       $15,500,000

                 60%          $246,000,000                       60%       $18,600,000

                 70%          $287,000,000                       70%       $21,700,000

                 80%          $328,000,000                       80%       $24,800,000

                 90%          $369,000,000                       90%       $27,900,000

                 100%         $410,000,000                       100%      $31,000,000

                    JEFFERSON   COUNTY                                LIBERTY COUNTY

                    HAS NO HOSPITALS                                HAS NO HOSPITALS

                                                   89

                        17RANKLIN COUNTY                                GULF COUNTY

                     DAMAGE               COST                     DAMAGE           COST

                     10%           $4,340,000                      10%          $880,000

                     20%           $8,680,000                      20%       $1,760,000

                     30%         $13,020,000                       30%       $2,640,000

                     40%         $17,360,000                       40%       $3,520,000

                     50%         $21,700,000                       50%       $4,400,000

                     60%         $26,400,000                       60%       $5,280,000

                     70%         $30,380,000                       70%       $6,160,000

                     80%         $34,720,000                       80%       $7,040,000

                     90%         $39,060,000                       90%       $7,920,000

                     100%        $43,400,000                       100%      $8,880,000

                                              CALHOUN COUNTY

                                           DAMAGE             COST

                                           10%           $700,000

                                           20%        $1,400,000

                                           30%        $2,100,000

                                           40%        $2,800,000

                                           50%        $3,500,000

                                           60%        $4,200,000

                                           70%        $4,900,000

                                           80%        $5,600,000

                                           90%        $6,300,000

                                           100%       $7,000,000

                                                     90

               I. Government Owned Facilities

                  Many of the post-disaster assistance programs are administered

                  out of go vern ment owned f a ci 1 i t i es. Tab 1 e 30 gi ves a da ma ge

                  estimate by percentage for these facilities in the nine

                  counties of the Apalachee Region.

                                                  Table 30

                              GOVERNMENT OWNED FACILITY REPLACEMENT COSTS

                       WAKULLA COUNTY                                    LEON COUNTY

                  DAMAGE                   COST                   DAMAGE                COST

                  10%               $9,000,000                    10%           $55,000,000

                  20%             $18,000,000                     20%         $110,000,000

                  30%             $27,000,000                     30%         $165,000,000

                  40%             $36,000,000                     40%         $220,000,000

                  50%             $45,000,000                     50%         $275,000,000

                  60%             $54,000,000                     60%         $330,000,000

                  70%             $63,000,000                     70%         $385,000,000

                  80%             $72,000,000                     80%         $440,000,000

                  90%             $81,000,000                     90%         $495,000,000

                  100%            $90,000,000                     100%        $550,000,000

                                                    91

                         GADSDEN COUNTY                              JACKSON COUNTY

                   DAMAGE              COST                      DAMAGE               COST

                   10%              $230,000                     10%          $6,800,000

                   20%              $460,000                     20%         $13,600,000

                   30%              $690,000                     30%         $21,400,000

                   40%              $920,000                     40%         $28,200,000

                   50%            $1,150,000                     50%         $35,000,000

                   60%            $1,380,000                     60%         $41,800,000

                   70%            $1,610,000                     70%         $48,600,000

                   80%            $1,840,000                     80%         $55,200,000

                   90%            $2,070,000                     90%         $62,000,000

                   100%           $2,300,000                     100%        $68,000,000

                       JEFFERSON COUNTY                               LIBERTY COUNTY

                   DAMAGE                 COST                    DAMAGE               COST

                   10%              $300,000                      10%          $1,800,000

                   20%              $600,000                      20%          $3,600,000

                   30%              $900,000                      30%          $5,400,000

                   40%            $1,200,000                     40%            $7,200,000

                   50%            $1,500,000                      50%          $9,000,000

                   60%            $1,800,000                      60%         $10,800,000

                   70%            $2,100,000                      70%         $12,600,000

                   80%            $2,400,000                      80%         $14,400,000

                   90%            $2,700,000                      90%         $17,200,000

                   100%           $3,000,000                     100%         $18,000,000

                                                    92

                      GULF COUNTY                                    FRANKLIN COUNTY

                  DAMAGE                 COST                      DAMAGE              COST

                  10%             $2,900,000                       10%         $1,270,000

                  20%             $6,800,000                       20%         $2,540,000

                  30%             $9,700,000                       30%         $3,810,000

                  40%           $11,600,000                        40%         $5,080,000

                  50%           $14,500,000                        50%         $6,350,000

                  60%           $17,400,000                        60%         $7,620,000

                  70%           $20,300,000                        70%         $8,890,000

                  80%           $23,200,000                        80%         $10,160,000

                  90%           $26,100,000                        90%         $11,430,000

                  100%          $29,000,000                        100%        $12,700,000

                                              CALHOUN COUNTY

                                          DAMAGE                COST

                                          10%           $2,250,000

                                          20%           $4,500,000

                                          30%           $6,750,000

                                          40%           $9,000,000

                                          50%          $11,250,000

                                          60%          $13,500,000

                                          70%          $15,750,000

                                          80%          $18,000,000

                                          90%          $20,250,000

                                          100%         $22,500,000

                                                    93

                                            CONCLUSION

                 Public Facility replacement costs in the Apalachee Region are

                 modest in relation to the rest of the state because of the low

                 density population figures. Regardless of the region's stature,

                 immediate restoration of any public facility is of great

                 importance as a community attempts to return to its pre-storm

                 condition.

                                              94

     I
     I
     I
     I
     I               SECTION II. Hurricane Hazard Mitigation Policy Plan:
                                   Prevention of Future Loss
     I
     I
     I
     I

     i

     d

     -4

     A

     .4                                      95

                                          Introduction

                 This section formulates policies that can guide both

                 development and post hurricane redevelopment. Compliance with

                 these suggested policies should ensure that the counties in the

                 Apalachee Region reduce and avoid property losses in the event

                 of a hurricane. This section consists of seven parts. The first

                 part contains a developed methodology for reviewing a

                 development's impact on life and property based on its location

                 and hurricane vulnerability. Next, potential sites for the

                 relocation of facilities will be examined,      followed by a

                 subsection to guide the location of construction away from

                 hurricane vulnerable areas. Public acquisition techniques and

                 recommendations make up the fourth part. The fifth section

                 contains growth management tools available to counties who may

                 be developing sound mitigation practices. After the planning

                 tools are examined, a county by county inventory of existing

                 mitigation-aimed planning will be analyzed. The final section

                 includes the formulation of hurricane hazard mitigation

                 policies to guide development in hazardous areas.

                                       FUTURE DEVELOPMENT

                 This section contains a methodology for reviewing future

                                              97

                 development, based upon potenti        al hurricane hazard

                 vulnerability.    Included   i s a  m e a n so fassessing   the

                 development's potential impact on life and property, according

                 to its location, as well as impact on hurricane evacuation

                 routes, population density and shelter capacity.

                                        A.  Procedure

                 The recommendation for development in a high risk area may

                 depend on the threat to both life and structures. A

                 determination of this threat can be accomplished through an

                 analysis based on a project's impacts upon the following: 1)

                 evacuation time and routes; 2) population and shelters.

                 To accomplish this analysis developments have to be    d i v i d e d

                 into different vulnerability zones,     predetermined in the

                 Apalachee Regional Hurricane Evacuation Flan. The plan depicts

                 two levels of vulnerability, A and B. All land area in Level A

                 is subject to flooding in hurricane intensity's of 1 or 2.(See

                 appendix D for the Saffir Simpson Scale description). All area

                 contained in region B is subject to flooding in a level 3-5

                 intensity hurricane.

                        B. Assessment of Evacuation Time and Routes

                 For coastal development, impact on population evacuation time

                 is critical. The affected coastal counties in the Apalachee

                                              98

                 region are Gulf, Franklin and Wakulla (Jefferson County has no

                 coastal population).    Although populations in the coastal

                 counties are relatively low, transportation routes are limited

                 and may flood well in advance of a hurricane's arrival. The

                 impacts and recommended policies are dependent on the precise

                 location of the project as related to hurricane vulnerability

                 based on the previously described zones, level A and B.

                                             Level A

                 Developments in level A zones, usually beaches and barrier

                 islands, must be scrutinized to a greater degree than projects

                 located inland. These regions are likely to be inundated during

                 a category 1 or 2 storm, whose probability is greater than a

                 higher intensity storm. Policies concerning development in A

                 zones must be very stringent because there are few non

                 structural -mitigation techniques that would be of use in these

                 regions. Development assessment must be based on the increase

                 in evacuation time for the area. The following list contains a

                 methodology for measuring impacts in this fashion:

                 1.) Assess existing evacuation time for the zone in which

                      the project is located.

                 2.) Determine the evacuation time for the proposed project

                      and the subsequent increase in the evacuation time for

                      the zone with the project added.

                                               99

                  3.   Assess the impact that transportation improvements

                       provided by the applicant will have upon evacuation time.

                  4.)  Assess the area's warning system, and time it takes for

                       the population at risk to be notified to evacuate.

                  5).  Assess potential improvements that the developer may

                       have on warning systems; improved evacuation routes or

                       suitable hurricane shelters.

                  Approval for development must     be based on the evacuation

                  network and further delays in clearance times. Table 31 shows

                  clearance times in the Apalachee Region ranging from 4.5 to 11

                  hours depending on the intensity, location, and forward speed

                  of the hurricane. If a development accessively impedes

                  clearance time for a high risk area,    modifications should be

                  enacted to minimize clearance time impacts.

                                              Level B

                  Most of area B in Apalachee is only  moderately populated. Since

                  the :region is growing, it can be anticipated that future

                  coastal development will intensify. Developments in this area

                  will slow evacuation time by tying up roadways that residents

                  located in the more hazardous A zone use to evacuate. This

                  situation can cause further problems, because the surge in a

                                               100

                                                                              TABLE 31

                                                                 CLEARANCE TIMES (IN HOURS)

                                                             REGIONAL                                                           REGIONAL
                                                     VULNERABILITY LEVEL                                                  VULNERABILITY LEVEL

                                 RESPONSE CURVE             A           B                            RESPONSE CURVE            A            B

               GULF              A-Quick'Response         4  1/2      4 3/4       GADSDEN            A-Quick Response         4 1/2       4  1/2
               COUNTY            B-Medium Response        7 1/2       7 1/2       COUNTY             B-Medium Response        7 1/2       71/2
                                 C-Slow Response          10 1/2      10 1/2                         C-Slow Response          10 1/2      101/2

               FRANKLIN          A-Quick Response           5         5  1/2      LIBERTY            A-Quick Response         4 1/2       5 112
               COUNTY            B-Quick Response           8         7  1/2      COUNTY             B-Medium Response        7 1/2       7 1/2
                                 C-Slow Response           I 1        10 1/2                         C-Slow Response          10 1/2      10 1/2

               WAKULLA           A-Quick Response         4 1/2         5         CALHOUN            A-QuickResponse          4 1/2         6
               COUNTY            B-QuickResponse          7 1/2       7 1/2       COUNTY             B-Medium Response        7 1/2       8 1/2
                                 C-Slow Response          10 1/2      10 112                         C-51ow Response          10 1/2      10 1/2

               JEFFERSON         A-Quick Response         4 1/2       4 1/2       JACKSON            A-QuickResponse          4 1/2       4 1/2
               COUNTY            B-Medium Response        7 1/2       7 1/2       COUNTY             B-Medium Response        7 1/2       7 1/2
                                 C-Slow Response          10 1/2      10 1/2                         C-Slow Response          10 1/2      10 1/2

               LEON              A-QuickResponse           5          6 1/4
               COUNTY            B-Medium Response         8            8
                                 C-Slow Response           11          11

                                       L113ERTY
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             MAP 4: FLOOD VULNERABILITY ZONES FOR       JEFFERSON COUNTY

            LEGEND

                    LEVEL "A Ek B" FLOODING                          JEFFERSON COUNTY
                  Primary Shelters
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                     MAP 5      FLOOD    VULNERABILITY ZONES FOR WAKULLA COUNTY

                                                                                                        7:     J
                                                                                     WAKULLA COUNTY

                                                                 105

                 level 3-5 storm is greater, and arrives earlier than with lower

                 intensity storm, thus clearance time must begin earlier in

                 order, to avoid getting trapped due to flooding, tree fall and

                 road washout. In order for developments in this zone to obtain

                 approval there are three suggested options they should meet:

                 1.  Construct on site shelters above the maximum surge

                     levels, providing shelter for both area A and B

                     residents;

                 2.  Improve existing evacuation routes; and

                 3.  Construct structures whose minimum floor elevation are

                     above maximum flood base elevation for a 100-year storm.

                       C. Assessment of Population and Shelter Adequacy

                 The vulnerability a proposed development creates for future

                 residents must include an analysis of existing shelters and

                 their adequacy to handle residents in the event of a hurricane.

                 Methodology for determining this impact includes the following:

                 1.   An assessment of available shelter space in areas outside

                      of the vulnerable area. If the development causes

                      existing shelter space to be inadequate, additional

                      shelter space should be provided by the developer;

                 2.   Assuming that adequate shelter space is currently

                      available,   the proposed population impacts are then

                      analyzed. This analysis includes the projects expected

                                               106

                                population that will require and seek shelter

                                and assumes that 45% of the population will be required

                                to    s e e k    s h e 1 t e r    if     a    s t o r m    is     forecasted             to

                                strike (Apalachee Region Hurricane Evacuation Study); and

                        3.      If the shelters in zone A or B which the project is

                                located in exceeds capacity,                       then the developer will

                                either have to participate in the creation of new

                                shelters or be recommended for denial.

                        Of the over 300,000 people in the Apalachee Region over 60,000

                        w i 11     be required to seek shelter in a major hurricane.

                        Currently there is adequate shelter space to accommodate those

                        seeking refuge, but if the population at risk increases and

                        shelter space does not, new facilities will have to be

                        constructed. In the event of a catastrophic storm, however, it

                        is doubtful that the region can handle victims from outside

                        such as Perry, Ft. Walton or Panama City.

                                                              Recommendations

                        The DRI process incorporates some evacuation issues within its

                        application for development approval process. Although very few

                        exist in the Apalachee Region, coastal DRI's have the biggest

                        impact on transportation and shelter facilities. The following

                        issues are specifically addressed within this region's DRI

                        process;        1) what impact will the development have on the

                        evacuation of developed region in the event of a storm? 2) What

                                                                      107

                 impacts will the development have upon the availability of

                 shelter space? 3) What are the impacts on flood proofing needs

                 caused by the statistical 100-year storm. These questions have

                 to be adequately addressed before the Application for

                 Development Approval can be declared sufficient by the RPC.

                 Other policy recommendations concerning evacuation time and

                 shelter space that should be considered are:

                 Shelters:

                 1. Shelters shall be designed to withstand the winds

                      of a catastrophic storm.

                 2.   Shelters should be equipped with necessities such

                      as water, food, communications and electrical generators.

                 Evacuation:

                 1. Developers shall include plans for evacuation and

                      indicate the adverse effects their development will

                      have on evacuation networks ( as required in the

                      DRI process).

                 2.   Evacuation    routes  s h a 1 1be p u tin  an  o r d e r of

                      priority.

                                             108

                                        RELOCATION SITES

                 Failing to relocate hurricane damaged or structures vulnerable

                 to hurricane damage, can amount to great costs for a locality.

                 Generally, a municipality will allow post-storm reconstruction

                 to take on characteristics, such as site and architecture,

                 similar to those in its pre-storm condition,           1 e a v i n g

                 development vulnerable to recurring structural damage. To

                 prevent this a community must identify sites for structural

                 relocation, and consider the economic feasibility of placing

                 certain facilities in low risk regions.

                 Relocation can be cost ineffective if it involves either moving

                 large structures, or encountering resistance by private owners

                 to move. This section identifies sites in the Apalachee Region

                 suitable for the relocation of the following structures:

                 damaged housing; water facilities; waste water treatment;

                 health care facilities; electric facilities; emergency

                 facilities, educational facilities; custodial care facilities;

                 and transportation facilities, based on factors such as costs,

                 vulnerability and suitability of the recommended location.

                 Development located in zones that would be inundated during a

                 category one or two storm should be considered for relocation.

                 Probabilities are far greater for a modest hurricane to strike

                 as opposed to a catastrophic one, thus only those facilities

                 located in regions that would be inundated during either a

                                              109

                 category one or two storm should relocate, as this section will

                 discuss.

                                        A. Damaged Housing

                 Housing units located in river f lood plains, areas vulnerable

                 to storm surge, and regions that can be flooded by standing

                 water are candidates for relocation. Wind damage does not

                 factor into relocation decisions because all of the Apalachee

                 Region would be impacted by hurricane force winds. The most

                 vulnerable regions in Apalachee to flooding and wind are the

                 coasts of Franklin, Gulf and Wakulla Counties. Unfortunately

                 most of the housing units within these counties are located

                 along the coast or rivers, the most vulnerable areas to storm

                 surge and flooding. Populations locate along the coast for

                 aesthetic and economic reasons, and would be very unwilling to

                 relocate. Local Government rules and regulations should require

                 dwelling units to either be elevated, or relocated to safer

                 areas. The most important issue is strict enforcement of

                 Federal, State and County regulations for coastal development.

                                        a. Wakulla County

                 In Wakulla County the land slopes up to the northwest. Coastal

                 communities should encourage redevelopment to expand in this

                 direction through zoning regulations and growth limitations.

                 Coastal areas should also find ways to obtain tracts of land

                                               110

                suitable for the relocation of mobile home communities, who

                suffer the greatest damage in the event of a storm.

                                       b. Franklin County

                In Franklin County the land immediately to the north of the

                current residential areas should be considered for the

                relocation of housing units. Further inland, swampy conditions

                exist over large areas, so new development and relocation are

                only possible a short distance away from the coast where it is

                still vulnerable to storm damage.

                Residents on barrier islands should either elevate their

                structures, or move them back behind dune lines. Those who live

                on the islands usually purchase their homes so they can live on

                the beach,   and probably would not be willing to relocate,

                regardless    of the storm probability.       H e r e ,e 1 e v a t i o n

                requirements and density restrictions should be enacted to

                eliminate further potential storm damage costs.

                                         c. Gulf County

                In Gulf County, protected to a small extent by St. Joe spit,

                not as many dwelling units are vulnerable to low intensity

                storms. Alternatives here include the elevation of structures

                and tax incentives that encourage residents to relocate inland.

                Strict enforcement of the Gulf County Coastal Control Line

                 program should be undertaken on St. Joe peninsula. no one

                 should be allowed to degrade the primary dune system without

                 first receiving a permit from DNR.

                                        d. Inland Counties

                 Inland Counties, where riverine flooding is a possibility,

                 should practice structural mitigation techniques rather than

                 relocation.  The probability of the occurrence of riverine

                 flooding is substantially less then storm surge,            thus

                 relocation may not be cost effective.

                 Communities such as Blountstown, partially located in the

                 floodplain, should not promote development within flood-prone

                 areas, but instead encourage growth into low risk regions.

                 The feasibility of relocating manufactured residential units

                 must also be considered. Mobile homes are obviously the easiest

                 to move and relocate. Most of the land these communities are

                 located on is rented, thus compensation may not be required.

                 Another plus when considering mobile home relocation is the

                 amount of available low risk land in the region suitable for

                 mobile home parks.

                 Moderate sized homes cannot be moved as easily as mobile homes.

                 Here compensation will have to occur, and a new lot purchased

                 by the homeowner. The unit on the acquired lot can either be

                                               112

                demolished, or a new elevated unit may be constructed.

                                     B. Water Facilities

                There are two costs levied when relocating water facilities.

                First there is the cost of relocating the entire facility.

                Second, there is the cost of piping water f rom the new site

                out to the population. Failing to relocate results in repair

                costs to hurricane damaged facilities and the inability to

                supply water to the public.

                Most of the water supply facilities in the Apalachee Region

                utilize groundwater extraction. The hazards to groundwater

                extraction depends on the depth of the well; deeper aquifers

                generally cannot be contaminated in the event of a hurricane.

                Table 32 identifies water facilities in the Apalachee Region

                located in areas vulnerable to either storm surge or riverine

                f looding, based on inf ormation contained in part one of the

                Apalachee Region Hurricane Loss Study.

                It must be noted that many of the listed f aci lit ies are

                businesses, such as restaurants. It is recommended that these

                facilities either move the business along with the water

                facility, or switch to an alternate source of water supply.

                                            113

                                                                               TABLE 32

                                                        PUBLIC WATER FACILITIES LOCATED IN HIGH RISK Z ONE S

                                                                            APALACHEE REGION

                               COUNTY   FACILITY NAME                LOCATION          COUNTY            FACILITY NAME                   LOCATION

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

                               CALHOUN                                                 JACKSON

                                        AIRPORT MOTEL              BLOUNTSTOWN                           APALACHEE CORRECTIONAL INST.      U.S. 90

                                        CAPT. TON'S                BLOUNTSTOWN                           PARAMORE LODGE                    SR 271

                                                                                                         SCHOLZ ELECTRICAL                 S.E. COUNTY
                               FRANKLIN                                                                  SNEADS WATER SYSTEM               SNEADS
                                        ALLIGATOR POINT            U.S. 98                               THREE RIVERS PARK                 SR 271

                                        ANNAWEEKE FOUNDATION       U.S. 98

                                        CITY OF APALACHICOLA       S.R. 384            JEFFERSON

                                        BAY NORTH                  U.S. 98                               NONE

                                        BAYVIEW                    U.S. 98

                                        BREAKAWAY LODGE            APALACHICOLA        LEON

                                        BUCCANEER INN              ST. GEORGE                            BLOUNT'S LANDING                  TALQUIN

                                        CARRABELLE SYSTEM          CARRABELLE                            COE'S LANDING                     TALOUIN
                                        CARRABELLE PARK            CARRABELLE                            FORT BRADEN SCHOOL                SR 20

                                        EASTPOINT WATER DISTRICT   EASTPOINT                             LEWIS HALL LANDING                TALQUIN

                                        GULFVIEW CAMPGROUND        EASTPUINT                             RIVER BLUFF PICNIC  AREA          SR 20

                                        LANARK VILLAGE             LANARK                                WILLIAM'S LANDING                 TALLAHASSEE

                                        SEABREEZE MOTEL            EASTPOINT

                                        SPORTSMAN'S LODGE          EASTP01NT           LIBERTY

                                        ST. GEORGE IS. PARK        ST. GEORGE                            NONE

                                        ST. GEORGE UTILITIES       ST. GEORGE

                                                                                       WAKULLA
                               GADSDEN                                                                   OCHLDCKNEE STATE PARK             S.W. SECTION

                                        CHATTAHOOTCHEE REST AREA   CHATTAHOOTCHEE                        PANACEA WATER SYSTEM              PANACEA

                               GULF

                                        CAPE SAN BLAS CAMPING      PORT ST. JOE

                                        CAPE SAN BLAS WATER        CR 30

                                        HIGHLAND VIEW WATER DIST.  HIGHLAND  VIEW

                                        INDIAN PASS CAMPGROUND     PORT ST.  JOE

                                        LIGHTHOUSE UTILITIES       PORT ST.  JOE

                                        CITY OF PT. ST. JOE        PORT ST.  JOE

                                        ST. JOSEPH PARK            PORT ST.  JOE

                                        WILLIAM J. RISH   PARK     PORT ST.  JOE

                                                                                       114

                              C. Waste Water Treatment Facilities

                Relocation of wastewater facilities involves the movement of

                the transport system that carries wastes from structures to the

                main facility. Sub-regional plants probably cannot be relocated

                in the region due to a low usage rate, which makes moving

                costs prohibitive. Plants that use evaporation/percolation

                ponds should not be located in an area that may be subject to

                category one or two level storms. In the event of a storm the

                ponds will likely overflow contaminants into various water

                systems, Threatening human drinking supplies.

                Waste water treatment plants that are nearing the end of there

                lifetime function should not be relocated.     The replacement

                plant, however, should not be located on the same     high risk

                area. Table 33 indicates the wastewater treatment facilities in

                the region that are located in high risk zones.

                                   D. Health Care Facilities

                Table 34 indicates the health care facilities and hospitals in

                the Apalachee Region located in high hazard zones. Hospitals

                and nursing home facilities are generally too large to

                relocate. The only   effective mitigation technique is to wait

                until the facility has deteriorated beyond its use, and rebuild

                the new structure outside high hazard zones. Notice that some

                of the facilities listed in table 34 are publicly owned and

                                             lis

                                                                   TABLE 33
                                         WASTEWATER TREATMENT FACILITIES LOCATED IN HIGH RISK REGIONS

                                                               APALACHEE REGION

                                  COUNTY         NAME                             LOCATION                 TREATM ENT

                                  FRANKLIN

                                                 ALLIGATOR POINT                  PANACEA                  AERATION

                                                 APALACHICOLA, CITY OF            APALACHICOLA             TRICKLING FILTER

                                                 BUCHANEER INN                 -  ST. GEORGE ISLAND        AERATION

                                                 CITY OF CARRABELLE               CARRABELLE               STP

                                                 EASTPOINT WATER DIST.            EASTPOINT                CONTACT STABILIZATION

                                                 LANARK VILLAGE                   LANARK VILLAGE           AERATION

                                                 ST GEORGE ISM RESTAURANT         ST. GEORGE ISM           SEPTIC TANK

                                                 3DO OCEAN MILE                   ST. GEORGE ISLAND        AERATION

                                                 VILLAS OF ST. GEORGE             ST. GEORGE ISM           AERATION

                                  GADSDEN

                                                 1-10 REST FACILITY               CHATAHOOTCHEE            CONTACT STABILIZATION

                                  GULF

                                                 BARRIER MKS                      CAPE SAN BLAS            AERATION

                                                 GULF AIRE                        BEACON HILL              CONTACT STABILIZATION

                                                 CITY OF PT. ST. JOE              PORT ST. JOE             PRIMARY DIGESTION

                                  LIBERTY

                                                 LIBERTY HEALTH CARE              BRISTOL                  AERATION

                                  WAKULLA        ANGELO'S RESTAURANT              PANACEA                  SEPTIC SYSTEM

                                                 BAYSIDE VILLAS                   PANACEA                  AERATION

                                                 OYSTER BAY                       SHELL POINT              CONTACT STABILIZATION

                                                 PARADISE VILLAGE                 SHELL POINT              AERAT10N

                                                 SHELL POINT                      SHELL POINT              AERATION

                                                                                  116

                some are privately owned. Governments have greater control over

                publicly owned facilities, and can select suitable locations

                for redevelopment.

                                    E. Electrical Facilities

                It is uneconomical to relocate electrical substations and power

                generating facilities. Power stations have to be located within

                close proximity to population centers. If the facility were to

                be relocated,   there would be added expenses in obtaining

                easements for power lines, and boosters for transport stations.

                Electrical facilities in the region are for the most part away

                from high risk areas. Table 35 indicates electrical facilities

                in the Apalachee Region located in moderate risk areas. For

                these facilities structural mitigation techniques, such as

                placing brick walls around the substations, are recommended.

                This should protect the facility from floating debris that can

                damage the facility in the event of a major storm.

                For cooling purposes major power stations must be located near

                a water source. There are only two generating stations located

                in The Apalachee Region. Both of these sites are in Leon County

                next to the Ochlocknee River, where riverine and lake flooding

                are controlled by a dam.

                                                 117

                                                            TABLE 34

                               HOSPITALS AND NURSING HONES LOCATED IN HIGH RISK AREAS

                                                       APALACHEE REGION

                   NAME                                                 COUNTY        TYPE             MANAGEMENT_]
                   -----------------------------------------------------------------------------

                   GEORGE E. WEEMS MEMORIAL HOSPITAL                    FRANKLIN      HOSPITAL         PUBLIC

                   ANEEUAKEE, INC.                                      FRANKLIN      HOSPITAL         PUBLIC

                   APALACHICOLA HEALTH CARE CENTER                      FRANKLIN      NURSING          N.A.

                   GULF PINES HOSPITAL                                  GULF          HOSPITAL         PRIVATE

                   BAY ST. JOSEPH CARE      CENTER                      GULF          NURSING          N.A.

                                                                   TABLE 35

                                             ELECTRICAL FACILITIES LOCATED IN HIGH RISK AREAS

                                                               APALACHEE REGION

                   NAME OF COMPANY                                      TYPE OF FACILITY               COUNTY

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

                   FLORIDA PUBLIC UTILITIES                             BLOUNTSTOUN SUBSTATION         CALHOUN

                   CITY OF   BLOUNTSTOUN                                N.A.                           CALHOUN

                   FLORIDA   POUER CORP.                                APALACHICOLA SUBSTATION        FRANKLIN

                   FLORIDA   POUER   CORP.                              OCHLOCKNEE SUBSTATION          FRANKLIN

                   FLORIDA   POUER    CORP.                             EASTPOINT SUBSTATION           FRANKLIN

                   FLORIDA   POIJER   CORP.                             BEACON HILL SUBSTATION         GULF

                   FLORIDA   POIJER   CORP.                             PORT ST. JOE SUBSTATION        GULF

                   FLORIDA   POIJER   CORP.                             PORT ST. JOE IND. SUBST.       GULF

                   GULF POIJER CO.                                      SCHOLZ SUBSTATION              JACKSON

                   FLORIDA POIJER CORP.                                 JACKSON BLUFF SUBSTATION       LEON
                   TALQUIN ELECTRIC                                     LAKE JACKSON SUBSTATION        LEON

                   FLORIDA POUER CORP.                                  SEMINOLE ASPHALT               IJAKULLA

                                                             118

                                                        F. Educational Facilities

                        Because most educational facilities are owned by local

                        governments, relocation encouragement through land use

                        regulations does not apply.                            Rather than rebuilding in

                        vulnerable             a r e a s ,     1 o c a 1    governments              f i n a n c i n g    t h e

                        reconstruction of hurricane damaged schools must closely

                        examine other options. Because of their size, schools generally

                        cannot be relocated. When the old facility has outlived its

                        usefulness, land can be obtained for construction of a new

                        unit, while the old structure is rehabilitated and converted to

                        other uses.

                                                      G. Custodial Care Facilities

                        In the Apalachee Region,                          relocation of custodial care

                        facilities is not a major issue.                                  It is up to various

                        governmental agencies not to locate in regions where they risk

                        hurricane damage.

                                                      H. Transportation Facilities

                        Relocation of transportation facilities is not a major issue in

                        the Apalachee Region. Ports along the coast have to be located

                        in high risk areas, however, there are mitigation techniques

                        that can be enacted by loc*alities                        to minimize damage to boats.

                        Ports must develop boat tie down policies to immobilize them in

                 the event of a major storm.

                 Airports in the region are located inland away from high risk

                 zones.   One major bus facility is located in downtown

                 Tallahassee, outside of any flood hazard area.

                                           Conclusion

                 Governments must closely examine where major public and private

                 facilities are located that provide service to the general

                 public. Hurricane surge and flooding as well as erosion of the

                 land must be closely examined pending development approval for

                 any type structure. Where possible, major facilities should be

                 relocated from barrier islands and the coastal fringe to secure

                 location in the interior of counties.       Where this is not

                 possible due to size and cost, A suitable replacement location

                 should be selected, so at the end of the structures life-cycle

                 the new structure has been constructed and is functioning.

                                              120

                                   FUTURE DEVELOPMENT SITES

                People locate along coastlines, rivers and lakes for aesthetic

                reasons. Local governments are encouraged to guide development

                toward sites that are both suitable for construction and away

                from the potential damages that can accompany a hurricane. This

                section identifies potential sites in the region suitable     for

                the relocation of hurricane vulnerable development.

                                      A. Inland Counties

                The greatest threat to inland counties in the event of a

                hurricane are strong winds. The entire Apalachee region is at

                risk to hurricane force winds.     All structures    risk wind

                induced damage in the region.     The enactment of stringent

                building codes would be more feasible than future development

                location guidelines in the inland counties.

                                     B. Coastal Counties

                Lands vulnerable to hurricane induced flooding need to limit,

                or halt growth. Storm surge can reprofile coastal lands to the

                extent of completely removing all structures located there.

                There are extensive areas in the Apalachee Region susceptible

                to this form of destruction.

                                             121

                  St. George Island, Dog Island and other barrier islands in the

                  region are the most dangerous places to be during a hurricane

                  because they risk being entirely cutoff from assistance for an

                  extended time. Coastal areas such as Wakulla County, that have

                  no barrier islands to buffer some of the storm effects, have

                  the greatest potential for storm surge damage. The surge

                  heights around Panacea and St.    Marks under certain storm

                  scenarios may reach as high  as 63 f eet. All coastal areas in

                  the Region,  however,  w i 11 experience great surge heights

                  depending on the hurricane's intensity, direction of movement

                  and the condition of the tides.

                  Guiding development away from regions vulnerable to even modest

                  hurricane induced damage is a difficult task. In the coastal

                  counties, especially Wakulla and Franklin, land away from the

                  coast is either under public ownership, or wetlands unsuitable

                  for development. Crawfordville and Wewahitchka are the only

                  communities of modest size located away from the gulf in a

                  coastal county.

                  Since the region's coastal counties do not have adequate tracts

                  of land to locate future development on, they may have to

                  enact various growth management tools such as density

                  limitations and growth caps.

                                              122

                            PUBLIC ACQUISITI'OK OF HIGH HAZARD SITES

                Public land acquisition is the only absolute method of

                preventing development in high hazard areas. This section first

                identifies the characteristics of high hazard areas. Next,

                various federal, state and local Government public acquisition

                programs are reviewed, followed by suggested methods for local

                governments to obtain private land f or public use. Sources of

                land acquisition funding are than examined, followed by a

                county by county review of existing land purchasing programs.

                Finally, a status report of various tracts of coastal lands is

                analyzed.

                A. High Hazard Regions

                   As previously described, high hazard areas, for purposes of

                   this study, are those regions that risk being inundated by

                   hurricane induced flooding. These lands include barrier

                   islands, coastal areas, land adjacent to river floodplains,

                   and low lying areas.

                   1. Barrier Islands

                      Barrier islands undergo the greatest amount of physical

                      change during a hurricane. On many occasions, all

                      structures located on barrier islands can be completely

                      destroyed due to a shift shoreward. Construction on

                      barrier islands is far more risky than developing

                      anywhere on the mainland, because the island can both

                                             123

                         r ece i ve the s tor m Is in i t i al surge and w inds   a n d

                         experience this physical shift. Due to these dangers,

                         barrier islands should be high on all public acquisition

                         priority lists.

                      2. Shoreline

                         Unprotected coastal regions receive the blunt of incoming

                         hurricane intensified surge waters. Depending on the

                         location, hurricanes can be accompanied by a 25-35 foot

                         surge, and waves in some instances that may reach 50

                         feet. Beach resort areas that locate on the shoreline can

                         be devastated by one hurricane. To prevent the occurrence

                         of this destruction, various acquisition programs should

                         be enacted to keep coastal lands free from development.

                     3. River Flood Plains

                         Lands adjacent to rivers are subject to periodic

                         flooding, which may inundate property and displace

                         homeowners. Traditionally in the Apalachee Region inland

                         flooding has not been a major problem. The mouth of

                         rivers such as the Ochlocknee, Apalachicola and Aucilla

                         experience the greatest flooding due to surge, but this

                         report  classifies    those regions    as shoreline.     Land

                         adjacent to rivers should rank lower on priority lists

                         for public acquisition than coastal areas. Where there is

                         a chance of flooding, however, local governments should

                         consider stringent land use regulations.

                                                  124

                    4. Low Lying Areas

                       There are many low lying areas, excluding coastal areas,

                       in the Apalachee Region. These include areas such as

                       Southern Franklin County,   which has extensive wetlands.

                       These regions will likely remain in their natural state

                       because of the unsuitable- nature of the land for

                       development. Non coastal low lying areas should be ranked

                       below other high hazard zones on various land acquisition

                       priority lists.

                B. Public Acquisition Programs

                    Acquiring private lands for public use will ensure the land

                    will remain free of development. Land acquisition may be a

                    direct or indirect form of hazard mitigation. Direct methods

                    of hazard mitigation through land acquisition occur when

                    governme nt obtains land specifically to prevent development

                    in a region that is vulnerable to hurricane induced

                    f looding.   Indirect   hazard   m i t i g a t i o nthrough 1 a n d

                    acquisition occurs when land is obtained for an alternative

                    use. The alternative use does not allow development to

                    occur, minimizing the worry of hurricane induces structural

                    damage.

                    There are several methods through which land acquisition may

                    occur. These methods include; eminent domain, purchase of

                    easements,  exclusive use regulatory measures, compensation

                                               125

                     regulations, tax techniques etc. The source of funding for

                     these acquisition programs depends upon the level of

                     government involvement and the intentions behind the

                     purchase. Under some programs cost may be shared among

                     various combinations of local, state or federal government.

                     Most programs, however, are financed through a specific unit

                     of government. To follow is a profile of state, local and

                     federal land acquisition programs and methods by which they

                     are f inanced.

                     Federal Programs

                     Under the provisions of the National Flood Insurance Act of

                     1968, Section 1362,   the Federal Government can acquire

                     flood, or hurricane damaged lands. To be purchased by the

                     Federal Government, land must be covered by the National

                     Flood Insurance Program and meet one of the following

                     criteria:

                     a. The structure must be damaged beyond repair by flood

                       waters;

                     b -The structure must have had flood damage on not less than

                       three occasions during a five year period while covered

                       by NFIP. Each time the structure was flooded the cost of

                       repair must have been at least 25% of the total value;

                     C. Local or State Government law must prevent repair of

                       property from a single storm; and

                     d. Local or state ordinances permit repair only at a

                       significantly increased cost to the owner.

                                               126

                 2. State Acquisition Program

                    The majority of Florida's land acquisition programs are

                    indirect methods of hazard mitigation. These programs will

                    purchase undeveloped flood hazard regions that are either

                    environmentally sensitive, or have positive aesthetic

                    value. They are then transformed into recreational areas, or

                    left in their natural state. This form of land acquisition

                    is not directed at hazard mitigation,      but restricting

                    development on public lands eliminates potential structural

                    damage in the event of a storm.

                    In Florida the four major land acquisition programs include

                    the Conservation and Recreational Lands(CARL), Land

                    Acquisition Trust Fund(LATF), Save our Coast(SOC) and Save

                    our Rivers(SOR) program.

                    a. Conservation and Recreational Lands

                       The CARL land acquisition program(under 253.023 F.S) is

                       the most active in the State. Environmentally sensitive,

                       ecologically delicate and recreationally desirable are

                       the major categories of land purchased through the

                       program. There are presently over 70 tracts of land on

                       CARL's priority list for land acquisition. These lands

                       may be acquired through outright purchase or eminent

                       domain,  some of the tracts in the Apalachee Region

                       include: Wakulla Springs, Wakulla County; Aucilla and

                                              127

                        Wacissa Rivers, Jefferson County; and after       completion

                        of a boundary design,     parts of the Apalachicola Bay

                        Waterfront, which may include Nick's Hole, Cat Point,

                        East Hole, Small Point    Bayfront, City of Apalachicola

                        Bayfront,   Sike's Cut,   designated lower Apalachicola

                        parcels and Gadsden County Glades. Funds for CARL come

                        from an exise tax on the - severance of oil,           g a s ,

                        phosphates and minerals.

                     b. Land Acquisition Trust Fund

                         Less active than the CARL program, The LATF generally

                        purchases flood prone areas to transform them into

                        recreational sites. The intentions of the trust fund are

                        no t aimed at direct hazard mitigation, but in exclusively

                        purchasing shoreline properties, development is kept out

                        of vulnerable areas. The program is administered through

                        the Department of Natural Resources who obtain funds from

                        selling and leasing state resources.

                    c. Save Our Coasts

                        Inducing positive coastal growth patterns in the interest

                        of conservation and preservation are the intentions

                        behind the Save our Coasts program. High risk'coastal

                        lands often fall into this category. As of the beginning

                        of 1986, 278 acres of the St. Joseph peninsula in Gulf

                        County was the only*tract in the Apalachee Region on the

                        SOC priority list. Fundi  ng is provided through the Land

                                                128

                      Acquisition Trust Fund.

                    d. Save Our Rivers

                      The Save our Rivers land acquisition program was

                      developed under section 373-590,     F. S. which requires

                      water management districts in Florida to design a

                      priority list directed at purchase of land for water

                      management, supply and conservation. Funds are available

                      through the Water Management Lands Trust Fund.

                    e. Private Non Profit Land Acquisition Programs

                      The two principle non profit land purchasers in Florida

                      are the Trust for Public Lands and the Nature

                      Conservancy. These organizations may keep the land they

                      purchase for their own intentions, or sell it to local

                      state or federal government.      Purchases are usually

                      oriented toward pre-servation and conservation instead of

                      hazard mitigation, but governments who obtain land from

                      them may have hazard mitigation intents

                             3. Local Government Land Acquisition

                    Because of the limited financial resources of many local

                    governments in the Apalachee Region, local land acquisition

                    programs are generally not feasible. These governments

                    depend upon the well funded state land acquisition programs

                    to protect their high risk lands. This section examines the

                                              129

                     various county issues in the region concerning land

                     acquisition.

                                            Calhoun County

                     Calhoun County has no coastal areas, so land acquisition is

                     not a major issue. The Apalachicola River forms the eastern

                     boundary of the county. Flooding from the river has

                     generally not been a problem in the past, but Blountstown

                     lies in a vulnerable area that could be flooded in the event

                     of a major storm. Although not critical, the County could

                     prohibit Blountstown's further encroachment toward the river

                     floodplain by acquiring land, which may not be possible

                     because of high costs. The County has a large quantity of

                     federally owned land within the Apalachicola Forest where

                     development will not occur.

                                           Franklin County

                     Franklin County has not had the opportunity to develop a

                     local land acquisition program. As previously mentioned,

                     State and Federal Government has specific interests in the

                     County. St. Vincent, St. George and Dog Island, the

                     Apalachicola River Basin and the Apalachicola National

                     Forest all are owned by either State or Federal Government.

                     Other County lands, being the most fragile in the region,

                     are on priority lists of various land acquisition programs.

                                               130

                                          Gadsden County

                   For purposes of hurricane damage mitigation, Gadsden County

                   is in no need of a land acquisition program. There are lakes

                   in the County, however, where development can be flooded

                   under heavy hurricane induced rainfall. The County may wish

                   to acquire some lake and river front property in areas

                   subject to flooding.

                                           Gulf County

                   There are currently no local land acquisition programs in

                   Gulf County. The Federal Government recently donated Beacon

                   Lighthouse Property, Dead Man's Curve and some property at

                   White City. These properties were acquired as a result of

                   recurring flood damage. Because of the coastal location and

                   vulnerability to storm damage, many State land acquisition

                   programs are interested in Gulf County lands,         ranking

                   various properties high on priority lists as previously

                   mentioned.

                                          Jackson County

                   Being a substantial distance inland, developing a local land

                   acquisition program is not vital to Jackson County. The

                   Apalachicola and Chattahoochee Rivers form the eastern

                                              131

                    boundary of the County. This land is currently undeveloped

                    and still can be protected through an acquisition program.

                    Flood probability from the river, however, is minimal.

                                           Jefferson County

                    Jefferson County,   similar to the other counties in the

                    region, has no land acquisition program. the county has five

                    miles of coast all in the St. Marks National Wildlife

                    Refugee, which is protected from development. Most of the

                    land suitable for development in the County is either owned

                    by timber companies, agricultural or under public ownership.

                    The Wacissa River and Aucilla River Sink are two areas

                    ranked high on the priority list of state land acquisition

                    programs.

                                            Leon County

                    Unlike the rest of the region, Leon County may have the

                    financial resources to participate in a local land

                    acquisition program. In order to obtain private lands the

                    County requests dedications as a part of the subdivision

                    review process. This land is transformed into either public

                    facility siting or a recreational site. Because there are no

                    storm    induced flood hazards in the County,        a land

                    acquisition program is not required.

                                              132

                                            Liberty County

                    Most of the land in Liberty County is either owned by St.

                    Joe Paper Company,     or is in the Apalachicola National

                    Forest. With the exception of some areas adjacent to the

                    Apalachicola River, the populated areas of the county are

                    not subject to flood hazards, so land acquisition is not a

                    major concern.    The Northwest Florida Water Management

                    District, however, has recently purchased floodplain areas

                    along the Apalachicola River in southern Liberty County.

                                             Wakulla County

                    Wakulla County,   when reviewing construction permits,      will

                    often require a dedication of land as a condition for

                    development approval. This allows for growth, but limits its

                    occurrence in high hazard regions. A number of high risk

                    regions in Wakulla County are     on land acquisition program

                    priority lists. The state's interest in the county, coupled

                    with    the thousands of acres       within the Apalachicola

                    National Forest will insure most of the undeveloped high

                    hazard regions in Wakulla will remain that way.

                    Methods of Land Acquisition

                    In acquiring private land for public use a unit of

                    government must consider time and money. Some techniques are

                    cheaper in the short run, but may be challenged by time

                                                133

                     consuming litigation,  rendering them cost inefficient. The

                     appropriate method depends upon the individual unit of

                     government and the inherent characteristics of the land.

                     Listed below are the various methods of public land

                     acquisition.

                     1. Fee Simple Acquisition

                        Fee simple land acquisition involves the outright

                        transfer of property rights from a private owner to

                        government at market rate or below. There are two methods

                        by which this may be accomplished. First, the     owner is

                        given the opportunity to voluntarily sell his property

                        title.  If this is not successful the government may

                        acquire the land   by the second method, eminent domain.

                        This method is often met with resistance and usually

                        spends substantial time in litigation.

                        Fee simple land acquisition gives government 100% control

                        of the land. The problem with the acquisition of high

                        hazard coastal land is cost.   Obtaining coastal property

                        at existing market rates is usually beyond the financial

                        resources of most local governments. If  the local unit of

                        government possesses the financial resources to purchase

                        the property, they often cannot afford maintenance costs

                        that accompany the management of a public accessed area.

                                                134

                    2. Leasebacks

                       Leasebacking is another form of fee simple land

                       acquisition. When a local unit of Government purchases a

                       tract of storm damaged property, they may lease it back

                       to the previous property owner at a low rate, providing

                       he takes into account hazard mitigation measures during

                       reconstruction.

                    3. Partial Lot Acquisi tion

                       Partial lot acquisition grants government complete

                       control of a section of private property, allowing the

                       owner to remain on the rest of the tract. Government will

                       use this method of acquisition to keep development out of

                       either environmentally sensitive areas or lands under the

                       100-year flood plain. Owners of tracts that have wetlands

                       or land unsuitable for development , on which taxes are

                       paid, are often willing to sell to local governments in

                       order to reduce costs.

                 D. Financing Land Acquisition

                    1. Land and Water Conservation Fund

                       The Land and Water Conservation Fund is administered

                       through the U.S. Department of Interior and Florida's

                       Department of Natural Resources. This program primarily

                       supports the purchase of coastal lands, thus is a direct

                       form of hazard mitigation. The program is funded on a 50%

                                              135

                        matching basis between the State and Federal government.

                        Revenues come from user fees at Federal recreational

                        s i t e s ,sale of surplus lands,  marine fuel tax,     and

                        offshore leasing programs.

                     2. Resource Conservation and Developlent Program

                        The Resource Conservation and Development Program is

                        administered through local offices of the Soil

                        Conservation Service. Financial assistance is available

                        for land acquisition if it deals with resource

                        con-servation  measures.   Funds  are available     through

                        regional branches of the Soil Conservation Service who

                        coordinate with the Florida Department Agriculture on a

                        50% matching basis with the community.

                        Water Resource Development Funds

                        The Water Resource Development Funding program is one of

                        few land acquisition financing programs intended for

                        hazard mitigation. Money is channeled through the Corps

                        of Engineers to local governments, aiding them in the

                        purchase of lands located in the floodplain. The

                        eligibility requirements, however, are stringent, making

                        it difficult for local governments to obtain this type of

                        funding. The Corps of Engineers coordinates with both the

                        Florida Department of Environmental Regulation and the

                        directly with the community involved.

                                                136

                   4. Florida's Water Management Trust Fund

                      The Florida Water Management Trust Fund is used for land

                      acquisition by Florida's five Water Management Districts.

                      Monies are obtained from stamp taxes, deeds and land

                      transactions    by  the Department     of Environmental

                      Resources.   Lands are purchased primarily for water

                      management purposes, water supply and protection of water

                      resources.

                   5. Conservation and Recreational Lands Trust Fund

                      The   Conservation and Recreational Lands Trust Fund is

                      set aside for acquisition of lands on the coast near

                      urban sites. The fund is used to protect areas that are

                      marshy, estuarine, in state parks or recreation areas,

                      public beaches, sensitive ecosystems, archaeological

                      sites or state forests.

                   6. Watershed Protection and Flood Prevention Losses

                      The Watershed and Flood Prevention Losses financing

                      program is administered through the Farmer's Home

                      Administration. This program assists local governments in

                      acquiring land for flood hazard mitigation. Rock Creek of

                      the Torreya region in Liberty County is ranked 7th on the

                      trust fund's priority list as of the beginning of 1986,

                                              137

                  B. Coastal Land Inventory of Franklin and Gulf Counties

                    Table 35 is a coastal land inventory prepared 6 years ago by

                    the Department of Coastal Zone Studies at the University of

                    West Florida. The intent of the project was to locate

                    coastal property for public acquisition. At the time of the

                    study Wakulla and Jefferson County did not have coastal

                    construction lines,-thus are absent from the study. The

                    delineation of these lines preceded the inventory.

                    The inventory profiles Gulf and Franklin County's ocean-

                    front tracts. The tracts are sized in linear footage and

                    deter-mined to be either developed or undeveloped property.

                    It was also determined if the tracts were publicly owned or

                    not. Several criteria were used to determine   priority lists

                    for public acquisition, they included; coastal construction

                    control  line impact, erosion, public access, development

                    status, geomorphology and property size. Three parcels in

                    Apalachee were singled out, including Yon's Subdivision,

                    North Cape San Blas and an area just East of Cape San Blas.

                                            Conclusion

                 An intense public acquisition can be successful in the

                 Apalachee Region    because of the abundance of undeveloped

                 coastal lots. Working in the Apalachee Region's favor are the

                 large amounts of undeveloped coastal lots. State and County

                                               138

                                                                                     TABLE 36

                                                              COASTAL LAND INVENTORY OF THE APALACHEE REGION

                                              GULF COUNTY
                                      LOCATION                                 DEVELOPED        UNDEVELOPED         LINEAR LENGTH        OWNERSHIP

                                      BEACON HILL  EAST                                               x                  600'

                                      BEACON  HILL                                   x                                   1000,

                                      BEACON  HILL                                                    x                  700'

                                      BEACON  HILL                                   x                                   200'

                                      BEACON  HILL                                                    x                  2500'

                                      BEACON  HILL                                   x                                   100,

                                      YON'S SUBDIVISION                                               x                  Z600'

                                      YON'S SUBDIVISION                              x                                   100,

                                      E. OF   YON'S SUBDIVISION                                       x                  8200'

                                      ST. JOSEPH STATE PARK                                                              46700'             STATE

                                      S. OF ST. JOS. ST. PARK                                         x                  2600'

                                      S. OF ST.JOSE. ST. PK.                         x                                   500,

                                      NORTH OF  CAPE  SAN BLAS                                        x                  24800'

                                      CAPE SAN  BLAS                                 x                                   1700'

                                      CAPE SAN  BLAS                                                                     2200,              FEDERAL

                                      CAPE SAN  BLAS                                                                     1000,              FEDERAL

                                      CAPE SAN  BLAS                                                                     2000'              FEDERAL

                                      CAPE SAN  BLAS                                                                     3700'              FEDERAL

                                      E. OF CAPE SAN BLAS                            x                                   1800,

                                      E. OF CAPE SAN BLAS                                             x                  8400"

                                      E. OF CAPE SAN BLAS                            x                                   100,

                                      E. OF CAPE SAN BLAS                                             x                  7200'

                                      E. OF CAPE SAN BLAS                            x                                   1200'

                                      INDIAN PENINSULA                                                x                  13200'

                                      INDIAN PENIN M A                               x                                   1500,

                                      INDIAN PENINSULA                                                x                  3900,

                                                                     FRANKLIN COUNTY

                                      LITTLE ST.   GEORGE   ISLAND                                                       14800'             STATE

                                      LITTLE ST.   GEORGE   ISLAND                                                       29500'             STATE

                                      ST. GEORGE   ISLAND   CHANNEL                                                      500,

                                      ST. GEORGE   ISLAND                                             x                  20500'

                                      ST. GEORGE   ISLAND                            x                                   19000,

                                      ST. GEORGE   ISLAND                                             x                  11250'

                                      ST. GEORGE   ISLAND   STATE PK.                                                    32950              STATE

                                                                                       139

              governments have realized that it is desirable for land in this

              area to remain in its natural state through land acquisition.

              Although this is not a direct form of hazard mitigation, it

              does provide a buffer between hurricane surge and structures.

              Allowing land to remain in its natural state means large sums

              of monies are not spent on the revitilization of infrastructure

              and buildings that may be devastated in the event of a majo    r

              storm.

                                           140

                                 GROWTH MANAGEMENT TECHNIQUES

              This section examines various growth management tools recommended

              for use by local governments as a means to promote     sound hazard

              mitigation practices. The analysis will include: police power

              regulations,   compensation programs, financial incentives and

              disincentives, taxing policies and various other methods to manage

              growth in coastal areas.

              A. Police Power Regulations

                 Local governments can use their police power, which is the

                 authority to regulate in order to promote the health, safety,

                 welfare and morality of its citizens, in order to control

                 development in high hazard areas. Some   communities have faced

                 legal challenges concerning the adoption of certain police

                 power regulations. When government regulations unreasonably

                 preclude a private property owner from all economical use of

                 his land, the landowner may challenge through litigation. Past

                 legal precedent favors land regulations enacted to prevent a

                 public harm. Local governments who deny property owners certain

                 development rights must prove that the restrictions they impose

                 are for the protection of the general public.

                 Zoning is the most common way by which government regulates

                 private property through police power. The original intent of

                 zoning was to separate incompatible land uses. Lately,

                 governments have utilized zoning as an effective hazard

                                               141

                 mitigation tool.    Zoning may restrict building densities,

                 heights and land use in sensitive regions such as coastal and

                 floodplain areas.

                 1. Flood Hazard Zoning

                    The hazards of  development in a floodplain depend upon the

                    intensity of construction and flood risk of the area.

                    Generally, regulating floodplain development is viewed as

                    preventing a public harm, usually within the bounds of local

                    government authority.

                 2. Subdivision Regulations

                    Through subdivision regulations local governments can

                    monitor the division of large tracts of land into small

                    parcels for development. By enforcing density limits and

                    facility control, local governments can take into account

                    the specific hazard vulnerability of the subdivision and

                    regulate accordingly.

                 3. Overlay zones

                    Overlay zones can be used during times of an emergency as

                    interim regulations prior to the enactment of a revised

                    zoning ordinance. Also known as floating zones, overlay

                    zones are used while officials reexamine and determine the

                    zoning policy of their region.

                                              142

                 4. M.ixed use Zoning

                    Mixed use zoning deviates f rom the traditional zoning

                    pattern by allowing different land use intensities in a

                    single zone. Mixed use zoning can create a clustering effect

                    on coastal developments by combining setback lines and

                    density limitations. Developers are restricted from building

                    within a certain distance of the shoreline in return for

                    lenient density limitations.

              B. Compensation Programs

                 When regulations prevent individual property owners from using

                 their land to its highest economic use, the court may require

                 government to provide compensation. This type of litigation is

                 both costly and time consuming. Courts must determine what

                 rights government and the landowner have, and than determine

                 who has control of the land, and how much compensation is

                 required, if any.

              C. Financial Incentives and Disincentives

                 Since the Federal Government does not have the authority to

                 regulate at the local level they must use indirect methods to

                 control high risk development. The most effective way of

                 encouraging local governments and private citizens to take into

                 consideration hazard mitigation techniques when developing in

                 high risk areas is the carrot and stick approach. Federal

                 government may of f er funding, the carrot, in return f or local

                 government land use regulation compliance with Federal intents.

                                               143

                 The NFIP and CZMA (previously mentioned)are two programs that

                 use incentive techniques to encourage localities to take into

                 account hazard mitigation planning.         The NFIP rewards

                 communities who abide by minimum development guidelines through

                 subsidized flood insurance.     Under the CZMA,    the Federal

                 Government allocates financial assistance to those

                 municipalities who plan their coastlines in accordance with

                 Federal standards.

                 If local Governments continue to utilize poor hazard planning

                 techniques the Federal Government may enact the stick approach

                 and revoke funding that local governmental entities have become

                 dependent on. Threatening to revoke highway funding is the most

                 common utilization of the stick approach.

                 1. Incentive Zoning

                    Incentive zoning is used as a trade off between local

                    government and developers. Often the developer is allowed to

                    build at increased densities in high risk areas if he

                    allocates land for some type of public benefit. Incentive

                    zoning is primarily used in coastal regions to encourage

                    development far behind the shoreline where structural damage

                    from surge should be minimal. Some incentives the builder

                    may receive in return for compliance are increased

                    residential units per acre, increased floor space, street

                    improvements, additional use types and favorable tax

                    evaluations.

                                              144

             D. Taxing Policies

                 Taxing programs can be used in a manner similar to the Federal

                 government's carrot and stick approaches at the local level.

                 Tax breaks may be used as a way to discourage developers from

                 building in coastal regions. If a developer, within regulation,

                 ignores local government mitigation-desires, local governments

                 can stick him with unfavorable tax burdens.      This section

                 details how government can use various taxing methods to

                 encourage effective hazard mitigation.

                 1. Abatements

                   Tax abatements are used by a local government in post

                   disaster situations.to ease some of the financial burdens of

                   redevelopment. Those who suffer storm related damage can

                   have their taxes reduced for the post hurricane period until

                   they hav e economically recovered.

                 2. Exemptions

                   Tax exemptions are enacted under more critical circumstances

                   than abatements. When tax exemptions are imposed storm

                   damaged lands are eliminated from the tax base. Through

                   exemptions, monies originally intended to go to government

                   can now be used by the property owner to aid in the recovery

                   process.

                                              145

                 3. Tax by Hazard Assessment

                    Tax by hazard assessment is used by local government to levy

                    taxes on properties in relation to their hazard

                    vulnerability. Generally an assessor is hired who imposes

                    taxes based on the properties risk calculation. This

                    technique discourages floodplain development by making it

                    financially unattractive to do so.

                 4. Tax Increment Financing

                    Tax increment financing  reduces the tax rate of an area that

                    has recently undergone   extensive hurricane damage. Local

                    governments will sell bonds and use the money to finance the

                    reconstruction of an area. The debt on increment bonds is

                    eliminated during reconstruction as the tax rate slowly

                    increases slightly above base level.

                 5. Parcel Development Agreement

                    Parcel development agreements are exchanges between a

                    property owner and a local unit of government. Generally

                    government will inspect an individuals house and inform him

                    of necessary improvements directed at hazard mitigation that

                    he must undertake before being allocated a tax break.

              E. Building Codes

                 Building codes are enacted to protect the public from poor,

                 unregulated construction. Enforced building codes can also aid

                 in hazard mitigation planning if restrictions are placed in

                                               146

                 order to minimize storm damage.

                 Local governments usually abide by a standardized model

                 building code. Local governments; however,'have the option of

                 developing more stringent codes based on the unique

                 characteristics of their locality. Regardless of what code a

                 municipality chooses, it is their responsibility to regulate

                 and enforce the code.

                 There are various mo .del codes that municipalities may adopt.

                 The Counties of the Apalachee Region generally abide by the

                 Standard Building Code. The use of the code is based upon

                 occupancy, location and type of construction.

                 The Southern Building Code takes into account appendix m of the

                 Standard Building Code. This is actually an initial effort to

                 addrezz floodplain and high hazard areas within a building

                 code. Under this subsection, buildings in high risk regions

                 must acknowledge high water forces through elevation standards,

                 anchoring standards, construction methods and record

                 certification.

                 A new code that has yet to be adopted by any of the coastal

                 counties in the Apalachee Region is the Coastal Construction

                 Code(CCC). Unlike standard building codes, the intentions of

                 the CCC are directed at storm loss mitigation. Structures are

                 required to be constructed so as to remain stable under storm

                                              147

                  conditions, taking into consideration beach and dune stability.

                  A shortcoming of this code, however, is       that it is directed

                  toward barrier islands and does not include coastline behind

                  the islands.

               F. Other Techniques

                  This section details other growth -management techniques that

                  can be enacted by local governments as a form of hazard

                  mitigation.

                  1. Impact Fees

                     An impact fee is a trade off between a developer and local

                     government.    Under normal circumstances a developer is

                     requi red to donate either land or public facilities such as

                     roads,schools or infrastructure in return for development

                     approval. In high risk areas, however, local government can

                     direct t his technique toward hazard mitigation by requiring

                     the developer to assist in the financing of mitigation

                     measures based on the strain the development places on

                     current facilities.

                  2. Transfer of Development Rights

                     Transfer of development rights enable a developer to

                     increase construction densities on a receiving area of land

                     by selling the property rights of restricted land. Local

                     government are within the rights of     their police power when

                     using the transfer of development rights because the

                                                  148

                    developer usually takes no loss by selling the property.

                 3. Public Facilities Location

                    A local government can encourage development in low risk

                    areas by strategically locating necessary public facilities

                    and limiting their service area.   It is more expensive for a

                    developer to generate his own facilities than to use ones

                    provided by the city, so development tends to follow the

                    pattern of city facilities. Locating public facilities in

                    low risk areas will discourage development in and around the

                    flood plains.

                 4. Special Development Districts

                    Special development districts attach user fees to new

                    developments planning to use city services and facilities.

                    This enables a city to accommodate growth, yet keeps it in

                    check.  Special development districts also use eminent

                    domain, taxing powers and land use controls to limit growth.

                 5. Hurricane Redevelopment District.

                    A new concept in service district ordinances is the

                    hurricane redevelopment district, used only in high risk

                    areas. Within these districts the County Commission acts as

                    the governing body. They first designate shore and beach

                    preservation districts. Residents within the designated

                    areas are charged up front fees that are earmarked for post

                    storm restoration. This way residents in the lower risk

                                               149

                    regions of a municipality will not be burdened with post

                    disaster financing. Funds are also used for eminent domain

                    land acquisition within the designated areas.

                 6. Sand Dune Regulations

                    Sand dune regulations inhibit the encroachment of

                    development onto the beach areas of a coast line. Vegetated

                    sand dunes serve as an important buffer between the open

                    ocean and inshore development. Sand dune regulations can

                    reduce the impact from a major storm if they are designed to

                    protect the vegetation and restrict development from within

                    a certain distance.

                    Septic Tank Regulations

                    After a municipality develops a public facility siting plan,

                    a developer may counter by providing cheaper private

                    services to his residents. A city can discourage developers

                    from locating in the higher risk areas by attaching

                    demanding restrictions on the allocation of various facility

                    licenses. Septic tank regulations are the most common of

                    these restrictions. Making it difficult to obtain a license

                    for the installation of private septic tanks may discourage

                    flood plain development

              G. Imple!lentation Legislation

                 Recent Florida legislation has attempted to address hazard

                                              150

                 mitigation through numerous programs.        These programs are

                 designed to insure local governments are abiding by State and

                 Federal desires, thus are effective at implementing hazard

                 mitigation.

                 1. Local Government Comprehensive Planning and the Coastal
                    - - - - - - - -     - - - -               -- - - - - - - - - - - - - -

                    Management Element

                    Recent growth management legislation requires local

                    governments to enact strict hazard mitigation policies. The

                    Coastal Management Element of a region's Comprehensive Plan

                    is one of the primary tools used to guide development in

                    coastal areas. The Coastal Management Element is to address

                    the following subjects.

                    a. A map of areas subject to coastal   flooding.

                    b. An analyses of the environmental, socioeconomic, and

                       fiscal impact of development and redevelopment proposed

                       in the future land use plan, including required

                       infrastructure on      natural historic coastal resources,

                       along with measures    designed to minimize or eliminate

                       adverse impacts.

                    a. Principles for hazard mitigation, including consideration

                       of the population density subject to possible evacuation

                       as proposed in the future land use plan.

                    d. Principles for protecting existing beach and dune systems

                       from   man induced erosion, as well as restoring altered

                       beach and dune systems.

                                               151

                    e. Designation of high hazard coastal areas subject to

                       destruction or severe damage from natural disasters,   for

                       which limitations on state expenditures will be imposed.

                    f. Principles providing financial insurances that adequate

                       public facilities will be in place to meet the demand

                       imposed by development and redevelopment.

                    9. Identification of regulatory and management techniques,

                       either adopted or proposed for adoption, to mitigate the

                       threat   to  h u m a nlife,control    development     a n d

                       redevelopment, give consideration to cumulative impacts,

                       and protect the coastal    environment.

                 2. Coastal Construction Program

                    The Coastal Construction Program(CCP) is designed to control

                    development seaward of the mean high water line(MHWL). All

                    construction seaward of this line is subject to strict

                    regulation based on the project's proximity to the MHWL. As

                    stated in chapters 161 and 403,     F.S. anyone wishing to

                    undertake any type of development seaward of the mean high

                    water line, must seek approval from the Department of

                    Natural Resources.     The permitting requirements are

                    identified in the Florida Administrative Code.

                    a. Coastal Construction Control Line

                       The Coastal Zone Protection Act of 1985 requires local

                       municipalities bordering waterfronts to design a

                       standardized building code for developments within the

                                              152

                       coastal building zone,' defined as the land area from the

                       seasonal high water-line to 1500 feet landward of the

                       coastal construction control line(CCCL) on mainland

                       areas, and 5000 feet on barrier islands. The zone for

                       areas, like the Big Bend Area, with no CCCL consists of

                       property seaward of the most landward portion of the

                       velocity zone. Within this region all structures must be

                       able to withstand 110 mph wind speeds at 30 feet off the

                       ground, be above the flood zone and foundations must be

                       able to survive wave, erosion and scourage forces that

                       would accompany a 100 year storm.

                3. Developments of Regional Impact

                    The development of regional impact process allows State and

                    Regional authorities to closely monitor projects of large

                    magnitude. Through the DRI process the developer is required

                    to take into account all of the adverse effects his

                    development proposal will have on the surrounding region

                    before he is granted development approval. DRI's can be an

                    important hazard mitigation tool if the development order

                    requires the builder to take into account the surge and

                    flood risk as well as the hurricane evacuation issues of his

                    property. Coastal construction projects, however, are

                    generally under the DRI threshold, therefore mitigation

                    regulations are far less stringent.

                                              1S3

                 4. Areas of Critical State Concern

                    A region whose preservation       is of absolute necessity

                    concerning conservation of the state's natural resources,

                    may be designated as an Area of Critical State Concern by

                    the State of Florida. In these regions local governments are

                    delegated regulation enforcement. If the local government

                    does not regulate up to state standards they lose their

                    governing authority over the region.

                    In the Apalachee region, Apalachicola bay is an area that

                    has been designated      one of Critical State Concern.

                    Restrictions imposed on the area will insure that coastal

                    development will remain  minimal, reducing the potential of

                    storm related structural damage.

                                           CONCLUSION

                 The appropriate growth management tool concerning hazard

                 mitigation depends upon the specific County and the site within

                 that County. Land use planning techniques can deter development

                 from high hazard areas, and thus prevent structural damage.

                 Most of the Apalachee Region is undeveloped, so growth can be

                 continually checked and guided in a manner that takes into

                 account the real threat that hurricanes are to the area.

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                                 COUNTY MITIGATION MEASURES

                This section details the various ongoing hazard mitigation

                measures f or each county in the Apalachee Region as stated in

                their Comprehensive Land Use Plan and Comprehensive Emergency

                Management Plan.

                                     A. Calhoun County

                Calhoun County does not have a Comprehensive Emergency

                Management Plan. The vulnerability to hurricane induced damage

                in the county i s minimal, so the draf ting of the plan is not

                critical.

                Calhoun County is not  forecasted to experience very much future

                growth.  This coupled with the f act that a great deal of

                property is either publicly owned, or under paper company

                jurisdiction, means the County does not need to expend funds on

                enforcing ordinances concerning hazard mitigation. The only

                protective measures on-going in Calhoun County are the

                requirements set forth by the   the NFIP.

                                      B. Franklin County

                The Franklin County Clerk of the Court is in charge of

                Emergency Management Administration. Due to the limited budget

                of the county    the Clerk is only available on a part time

                                              155

                 basis. His primary responsibilities include interpretation and

                 execution of the guidelines and policies of the Franklin County

                 Comprehensive Emergency Management Plan, which is the basic

                 format the County must follow under pre and post hazard

                 conditions. According to the County Emergency Management Plan,

                 assembled by DCA, the following agencies are charged with the

                 corresponding functions concerning hazard mitigation:

                 1. County Commission:

                    a. Restrict building in the 100 year flood zone through

                       limited permit issuance;

                    b. Instruct the Department of Planning and Zoning to

                       maintain and update maps of all flood-prone areas; and

                    c. Monitor and control density of development in areas

                       which may have evacuation problems.

                 2. Office of Civil Defense:

                    a. Act as the primary agency for mitigating hurricane

                       associated hazards in the county;

                    b. Keep the most current 100 year flood zone maps available

                       for review;

                    c. Provide information to the Department-of Planning and

                       Zoning on the associated hazards in Franklin County in

                       order to limit potential damage to persons and property;

                       and

                    d. See that hazard-related public      information   is

                       disseminated to the general public in a timely manner.

                                              156

                 3. Franklin County Planning, Zoning and Building Department

                    a. Enforce building codes; and

                    b. Review development for compliance with coastal setback

                       criteria and building standards.

                 Franklin County has imposed several regulations directed toward

                 hazard mitigation. Some of the major ones include the

                 following:

                 a. Coastal density restrictions;

                 b. Encouragement of vegetation planting on sand dunes, which

                    will increase stabilization;

                 c. Discourage the location of schools and public facilities

                    along the coast;

                 d. Compliance with the minimum requirements set forth by the

                    NFIP, including elevation of minimum floor-space at least

                    two feet above base flood elevation, and all structures

                    must be able to withstand 140mph winds;

                 e. Strict mobile home tie down specifications, and the

                    restriction of mobile homes from velocity zones;

                 f. No recreational vehicles in sand dune areas; and

                 g. No development approval for developments with more than

                    20% of impervious service.

                 Franklin County has been recognized by various forms of

                 government as being both an environmentally delicate area and

                 extremely susceptible to hurricane induced damage. The State of

                                              157

                 Florida has recently designated most of the county as one of

                 critical state concern. The Federal Government has taken notice

                 as well, transforming a large portion of Apalachicola Bay into

                 a National Sanctuary. The accompanying rules and regulations

                 associated with these designations will limit development,

                 minimizing the possibility of structural damage in the event of

                 a major hurricane.

                                       C. Gadsden County

                 Gadsden County is still in the process of developing a Hazard

                 Mitigation Annex as part of their Comprehensive Emergency

                 Management Plan. The county has a part time Emergency

                 Management Director who would be the one responsible for hazard

                 mitigation related activities.

                 The Gadsde n County Comprehensive Land Use Plan is in the

                 revision and update phase. On-going hazard mitigation measures

                 include the following:

                 a. Requirements set forth by the regular phase of the NFIP;

                 b. Subdivision regulations;

                 c. Enforcement of the Southern Standard Building Code; and

                 d. Review of all proposed development based on criteria

                    contained in an informally adopted land development code.

                                               158

                                            1). Gulf County

                  Gulf County's Emergency Management Plan has been in ef fect

                  since  March   1985.   The plan designates hazard mitigation

                  responsibilities as belonging to the County Commission in

                  conjunction with the Gulf County Civil Defense. The Council is

                  currently working on site specific hazard mitigation plans and

                  studies.

                  The Gulf County Comprehensive Plan, adopted in 1974, lays down

                  the following mitigation measures:

                  a. Subdivision regulations and zoning restrictions during

                     the development review process;

                  b. Enforcement of the Southern Standard Building Code; and

                  c. No mobile homes within the city of Port St. Joe.

                  The contents of the plan do not address effective hazard

                  mitigation policies. The plan lacks a Coastal Zone Element,

                  Recreation and Open Space Element, Future Land Use Element and

                  a Utilities Element.

                  There are various other ongoing hazard mitigation policies

                  in the county including:

                  a. Implementation of regulations associated with the Coastal

                     Control Line which consists of six miles of mainland coast;

                     and

    A                                            159

                 b. Meeting of requirements as designated by the regular

                    phase of the NFIP.

                                       E. Jackson County

                 Jackson County has yet to develop a Comprehensive Emergency

                 Management Plan. Jackson was the county in the region not under

                 disaster declaration during the two hurricanes (Kate and Elena)

                 of 1985. Because Jackson County is not vulnerable to the blunt

                 of hurricane induced damage, innovative mitigation related

                 regulations are not critical.

                                      F. Jefferson  County

                 The Jefferson County Comprehensive Emergency Management Plan,

                 assembled by DCA, designates the hazard mitigation

                 responsibilities of local agencies as follow:

                 1. County Commission:

                    a. Restrict building in the 100 year flood zone through

                        limited permit issuance;

                    b.  Instruct the Office of Building, Planning and Zoning to

                        maintain and update maps of all flood prone areas; and

                    c.  Monitor and control density of development in areas

                        which may hav e evacuation problems.

                                               160

                 2. Office of Civil Defense:

                   a. Act as the primary agency for mitigating hurricane

                      associated hazards in Jefferson County;

                   b. Keep the most current 100 year flood-zone maps available

                      for review;

                   c. Provide information to the Office of Building, Planning

                      and Zoning to the associated hazards in Jefferson County

                      in order to limit potential damage to persons or

                      property; and

                   d. See that hazard related public information is

                      disseminated to the general public in a timely manner.

                 3. Office of Building, Planning and Zoning:

                   a. Enforce building codes;

                   b. Review development for compliance  with set back criteria

                      and building standards.

                 Jefferson  County's  Comprehensive Land    Use Plan does     not

                 adequately address hazard mitigation. On-going landuse

                 regulations in the county dealing with hazard mitigation

                 include:

                 a. Subdivision regulations;

                 b. Individual development review for compliance;

                 C. Regulatory requirements of the regular phase of the

                     NFIP; and

                 d.  Set-back line of 100 feet along the Aucilla River.

                                              161

                                        G. Leon County

                 Leon County is well ahead of the      rest of the region in

                 emergency   management.    According   t o  t h eL e o n County

                 Comprehensive Emergency Management Plan, hazard mitigation

                 functions are the responsibility of the Department of Disaster

                 Preparedness. The duties of the department include policy

                 development, education and hazard mitigation information. They

                 can also make recommendations concerning zoning and building

                 codes.

                 The Tallahassee-Leon County Comprehensive Plan takes into

                 account hazard mitigation. Guidelines laid down by the plan,

                 and other on-going hazard mitigation measures taking place in

                 the county include the following:

                 a.  Subdivision regulations;

                 b.  Storm water management ordinance;

                 C.  Sign regulations(size,height and location);

                 d.  Tree protection ordinances; and

                 e.  Requirements set forth by the regular phase of the NFIP.

                                      H. Liberty County

                 The Emergency Management Plan for Liberty County, assembled by

                 DCA, details the various agencies in the county involved in

                 hazard mitigation and their responsibilities. These agencies

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                and their corresponding responsibilities are as follow:

                1. County Commission:

                   a. Restr i ct bu i ld i n g i n the 100 year f lood zone throu gh

                      limited permit issuance;

                   b. Instruct the Office of Building, Planning and Zoning to

                      maintain and update maps of all f lood prone areas; and

                   C. Monitor and control density of development in areas

                      which may have evacuation problems.

               2. Office of Civil Defense:

                   a. Act as the primary agency f or mitigating hurricane

                      associated hazards in Liberty County;

                   b. Keep the current 100 year flood-zone maps available

                      for review;

                   c. Provide information to the Office of Building, Planning

                      and Zoning to the associated hazards in Liberty County

                      in order to limit potential damage to persons or

                      property; and

                   d. See that hazard related public information is

                      disseminated to the general public in a timely manner.

                3. Office of Building, Planning and Zoning:

                   a. Enforce building codes;

                   b. Review development for compliance with set back criteria

                      and building standards.

                                             163

                 Most of the land in Liberty County is rural in nature, with

                 large tracts belonging to the National Forest and paper

                 companies. The primary hazard mitigation measures within the

                 County would be the requirements of the regular phase of the

                 NFIP .

                                      I. Wakulla County

                 The Hazard Mitigation Annex of the Wakulla County Comprehensive

                 Emergency Management Plan, assembled in 1985, extensively

                 addresses hazard mitigation. According to the Issue and Policy

                 Development section of the Annex, The Director of Disaster
                 Preparedness is to coordinate the overali effort to address

                 hazard   m i t i g a t i o nin Wakulla County. The   Director's

                 responsibilities include the following:

                 1. Work closely with the Florida Division of Emergency

                    Management and other agencies whose responsibilities

                    effect   the  success   a n d implementation     of hazard

                    mitigation measures;

                 2. Assist in identifying problems with existing regulations

                    or practices regarding community growth and development

                    to avoid or reduce disaster potential from natural or

                    manmade hazards;

                 3. Notify the Division of Emergency Management of problems

                    affecting Wakulla County and if necessary,           suggest

                                              164

                              appropriate local and stated legislation to reduce the

                              risk of life and property in areas where hazards reoccur;

                              and

                         4.   T h e    1 o c a 1   Director           w i 11     w o r k    c 1 o s e 1 y    w i t h    s t a t e

                              regional and other agencies to effectively use the

                              resources and their expertise necessary to address hazard

                              mitigation. State,                  regional and local efforts will be

                              accomplished through the Interagency Management

                              Committee. The IMC in concert with its advisory arm, the

                              Interagency             Advisory           Committee , will                   a c t    as     t h e

                              interagency coordinative body in planning and directing

                              hazard mitigation actions and programs.

                         The Hazard Mitigation Annex of the County Emergency Management

                         Plan lists the tasks of the various County agencies concerning

                         hazard mitigation, they include:

                         1. The       County Building Official will                              assure that            z o n i n g

                              requirements and limitations are consistent with

                              anticipated hazards;

                         2.   The County Attorney will stress the importance of proper

                              legal measures employed prior to hazard situations;

                         3.   The offices of Disaster Preparedness and building Official

                              will stress the need of adequate insurance coverage;

                         4.   The local Red Cross representatives and the Department of

                              Disaster Preparedness will review designated evacuation

                              shelters that will be made available for various hazard

                                                                          165

                    situations;

                 5. The Office of Disaster Preparedness will maintain a

                    checklist of resources that are available for various

                    hazardous conditions;

                 6. The. Building Official and the Director of Disaster

                    Preparedness will see that informative programs are

                    initiated in stressing hazard mitigation;

                 7. The Director of the Department of Disaster Preparedness

                    will assist in the development of state,      regional and

                    local hazardous mitigation policies affecting the several

                    communities within the jurisdiction;

                 8. The Office   of Disaster preparedness    w i 11 s o 11 c i t the

                    assistance of private agencies such as insurance

                    contractors and others in the community who could assist

                    in recognizing hazardous problems;

                 9. The Director will assume the responsibility of bringing to

                    the attention of policy makers issues and programs

                    affecting local growth and development;

                 10. The Director will encourage appropriate legislation at the

                    local level to reduce the risk of lif e and property in

                    areas vulnerable to the impacts of predictable, recurring

                    hazards;

                 11. The Office of Disaster Preparedness will maintain a current

                    file of local past and anticipated hazards; and

                 12. The Director will request state assistance in matters

                    pertaining to hazard mitigation beyond the capability of

                    local government.

                                              166

                The Hazard Mitigation Annex of the Wakulla County Emergency

                Management Plan states that hazard mitigation assessment in the

                county will consist of a four step pro-cess including a:

                Community Analysis,    Emergency Analysis,    Mitigation Needs

                Assessment and a Mitigation Strategy Development. Following is

                a summary of these four steps:

                1. Community Analysis

                   A community   checklist of potential hazards and their

                   effects on future changes should be examined. Review of

                   this    checklist is necessary to identify other

                   emergencies or hazards that will have their future

                   existence in the community.

                2. Emergency Analysis

                   Emergency analysis involves examining the nature and effect

                   of hazards when they become emergencies. This involves the

                   type of emergency the hazard caused, the affected

                   population by impact, and health, and the impact

                   on the property and the economy of the region.

                3. Mitigation Needs Analysis

                   The mitigation Needs Analysis is used to illustrate the

                   opportunity for improving public health and safety by

                   preventing, avoiding or protecting people and property from

                   a disaster.

                                              167

                  4. Mitigation Strategy Development

                     Developing a mitigation strategy involves selecting from all

                     the available resources and techniques that exist in the

                     community.

                  Aside from the Emergency Management Plan, Wakulla County

                  enacted a Comprehensive Land Use Plan in 1978 which includes

                  the following mitigation measures:

                  a. Coastal Zone Protection Element identifying the boundary of

                     the coastal zone.

                  -b. Coastal zoning restrictions.

                  c. Subdivision regulations, related to hazard mitigation.

                     Other ongoing hazard mitigation policies in Wakulla County

                     include:

                     1 . A. se t back of 50 feet from the mean high water line for

                        all coastal construction;

                     2. Coastal zone construction standards as prescribed under

                        the Coastal Zone Protection act of 1985; and

                    .3. Building requirements as set forth under the regular

                        phase of the NFIP.

                                               168

                                             POLICY

                This section examines region-wide mitigation policies to guide

                future development and post hurricane redevelopment in areas

                vulnerable to hurricane induced damage.

                The Apalachee Regional Policy Plan fails to include hazard

                mitigation guidelines,    so there are no adopted goals and

                guidelines.    The  f o 11 o w i n gsection includes  recommended

                guideline policies that should be incorporated into the

                Regional Policy Plan, Local Comprehensive Plans and Peacetime

                Emergency Management Plans.

                                          *OBJECTIVE*

                To provide various hazard mitigation recommendations that local

                governments   should  consider   depending on there    r e 1 a t i v e

                location and specific hazard vulnerability. These

                recommendations, if implemented effectively, will decrease the

                probability of structural damage, increase the safety factor of

                the population, and keep periods of public service disruptions

                to a minimum in the event of a major hurricane.

                                             169

                                             the Plan

                  A. New Development should:

                      a.   Be discouraged from occurring in high risk areas;

                      b.-  If in high risk areas be elevated one f oot above the

                           minimum requirement of the NFIP;

                      a.   Keep the floor space below the first floor of elevated

                           structures free from enclosure;

                      d.   Be able to withstand the wind   forces of a category

                           three hurricane; and

                      e.   Be part of an integrated hurricane evacuation and

                           shelter plan.

                  B. Hurricane reconstruction should:

                      a.   Be reassessed so not to be victim of recurring

                           structural damage;

                      b.   If possible be relocated to a lower risk area;

                      C.   Be removed f rom city services if rebuilt in the same

                           manner;

                      d.   Elevated higher,   and built to withstand stronger

                           hurricane forces than those that caused the initial

                           damage;

                      e.   Be placed under more stringent growth management

                           guidelines such as building codes and zoning

                           regulations; and

                      f.   Be in compliance with existing land use regulations,

                           even if a variance had been granted prior to the storm.

                                               170

                     Local governments should:

                     a    Develop comprehensive land use plans that adequately

                          address hazard mitigation through growth management

                          techniques;

                     b.   Finish their Peacetime Emergency Management Plan which

                          should cover goals and duties of those involved with

                          hazard mitigation;

                     C.   Participate in the regular phase of the National Flood

                          Insurance Program and enforce its residents to abide

                          by its minimum requirements;

                     d.   Develop innovative ways to provide salaries to

                          o f f i c i a 1 ssuch as planners, building inspectors and

                          full time civil defense directors who can implement

                          the intent of local Comprehensive Land Use Plans;

                     e.   Establish minimum criteria levels by which new

                          development may degrade current evacuation routes, and

                          base building permit issuance on that criteria;

                     f.   Adopt building codes which require structures to

                          maintain themself in a category 3 hurricane;

                     g.   Establish interlocal agreements directed at

                          maintaining the level of service for existing

                          evacuation routes, mutual assistance to provide

                          shelter space depending on the County affected and

                          providing recovery assistance to one another based on

                          need ;

                     h    Improve public awareness of the potential dangers of

                          regional hazards and the necessary steps to prevent

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                                            structural repair costs in the event of the

                                            occurrence of that hazard;

                                     i.     Discontinue public services to storm damaged areas to

                                            prevent redevelopment in high risk regions;

                                     j      Establish a public acquisition priority list, and

                                            present it to State and Federal land acquisition

                                            program authorities accompanied by the criteria used

                                            to establish             this list;

                                     k.     Relocate public facilities out of vulnerable zones.

                                            This will discourage development from locating in high

                                            risk areas;

                                     1.     Enforce the requirements of various statewide programs

                                            that      restrict           development             in     f lood hazard               areas

                                            through growth management tools such as subdivision

                                            regulations,                setback           1 i n e s ,     T D R I s    a n d    z o n i n g

                                            ordinances.             These          programs           include         the       Coastal

                                            Co  nstruction Control Line Program, the                                  Coastal Zone

                                            Protection Act, Coastal Building Zone, Florida's Beach

                                            Management and Erosion Control Program, Coastal

                                            Barrier Executive Order,                          and the Coastal Barrier

                                            Infrastructure Policy;

                                     M.     Establish a plan that enables the provision of

                                            temporary housing and establishment of disaster field

                                            of f ices and application centers to occur in a timely

                                            manner in the aftermath                       of a major storm;

                                     n.     Redevelop hurric              .ane damaged facilities in high risk

                                            areas only to serve predisaster densities;

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                      0. Enforce both impact fee payments to developers who

                          lower the level of service for existing transportation

                          networks, and   fair-share payments to developers who

                          degrade existing transportation standards;

                      p.  Establish density standards in all flood hazard areas;

                      q.  Monitor existing DRI's, if applicable, and report any

                          deviations from the development order that would

                          negatively effect the local hazard mitigation intents

                          to the appropriate authoritative agency;

                      r.  Prohibit septic tanks from the 100-year flood plain.

                      S.  Develop and implement tree and vegetation ordinances

                          which encourage native species to enhance sand

                          accumulation and stabilization; and

                      t.  Not allow unrecorded subdivisions to be developed

                          within their community.

                  D. Development on barrier islands should:

                      a. Have density limitations enforced;

                      b.  In no way alter the vegetation on sand dunes, nor the

                          dune itself;

                      C.  Not be serviced by any public facilities; and

                      d.  If permitted, be landward of setback lines and

                          elevated in compliance with minimum criteria

                          established by the NFIP.

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                       Individual homeowners should:

                       a.  Be aware of community hazard mitigation policies, and

                           comply with them;

                       b.  Abide by local construction standards, such as building

                           codes and elevation guidelines;

                       C.  Be aware of the location of DACs and DFOs as well as

                           local shelters and evacuation routes; and

                       d.  Participate in public hearings dealing with local land

                           use regulations, so they may have a say in community

                           hazard mitigation.

                       Developers should:

                       a. Elevate structures in the 100-year flood plain to comply

                           with FEMA criteria;

                       b.  Ensure pilings are placed far enough into the ground and

                           steel reinforced;

                       C.  Comply with local land use regulations; and

                       d.  Dedicate shelters or improve evacuation systems prior

                           to the completion of any project estimated to burden

                           existing shelter space, or degradade the level of

                           service of evacuation routes.

                       Mobile homes should:

                       a. Be adequately tied down and securely anchored;

                       b. Be located out of designated V zones as depicted on

                           NFIP  maps; and

                       C. Be apart of an  integrated evacuation and shelter plan.

                                               174

                There are several other mitigation policies that have been

                mentioned in previous sections. If properly implemented these

                policies allow communities to locate in medium risk areas, yet

                greatly reduce personal injury and structural damage.

                                            175

                                        FINAL CONCLUSION

                When comparing the potential monetary losses resulting f rom

                hurricane induced destruction in the Apalachee Region with the

                rest of the state, the numbers appear small. This is a very

                misleading statistic when one considers the economic condition

                of the residents in the area. The population in Apalachee lacks

                the financial resources to adequately recover from structural

                damage that can occur during a major storm.

                Utilization of effective hazard mitigation techniques can

                prevent the stress on the limited finances of the Apalachee

                residents. If growth in the region is directed away from high

                risk areas, and mitigation practices are utilized on existing

                structures, than the disaster potential in Apalachee can be

                substantially lessened, minimizing recovery time and the need

                for post disaster assistance.

                                              177

                                       APPENDIX A

                 The Three Periods of the Hurricane Recovery Process

                                    Immediate Emergency Period

                 The immediate emergency period begins at storm strike and

                 continues up to a f ew days af ter the storms arrival. During

                 this period emergency rescue operations are undertaken,      which

                 may include immediate medical assistance, shelter provision and

                 food allocation. In catastrophic storms there may be many

                 casualty victims. In this event extensive search and rescue

                 operations will be undertaken.

                 Immediate assistance activities are carried out through an

                 Emergency Operations Genter within each county during this

                 primary phase. State Emergency Response teams working along

                 side local government emergency groups allocate immediate

                 emergency supplies though these centers. Disaster Field Offices

                 take over the functions of these emergency centers once a

                 disaster declaration is made.

                                  Short Term Restoration Period

                 The short term restoration period begins a few days after storm

                 strike and may continue for up to a month. During this period

                 the disaster field office serves as the primary disaster

                                                179

                  assistance center in each County under disaster declaration.

                  When the president declares a region as a major disaster area,

                  a greater variation of assistance programs are available out of

                  the field offices. Field offices process damage assessment

                  reports and coordinate the allocation of various assistance

                  programs to disaster stricken areas.

                  Disaster Assistance Centers are set up shortly after the field

                  office has been established in counties under the President's

                  disaster declaration. These centers are set up in buildings

                  that are easily accessible by the public. The DACs accept

                  application for disaster victims throughout the short range

                  restoration period.

                                Long Range Reconstruction Period

                  The long range reconstruction period lasts until the stricken

                  area is restored to pre hurricane condition.      Most of the

                  programs listed in the Federal Program Assistance section of

                  the report are enacted during this period such as construction

                  and removal of major structures. After this period the region

                  usually has reobtained its social and economic stability.

                  Within 180 days of the President's disaster declaration all

                  state and local governments must submit a Hazard Mitigation

                  Plan to the FEMA Regional Director. The Hazard Mitigation Plan

                  must consist of a complete analysis of all damage that resulted

                                               180

                 f rom the previous storm. The plan must also contain a hazard

                 mitigation annex which reviews strategies for the enactment and

                 implementation of storm mitigation measures.        All future

                 disaster assistance is conditioned on the rationality of the

                 Hazard Mitigation Plan.

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                                                                          APPENDIX B

                                         Population Projections for the Apalachee Region

                           Expected population growth in the Apalachee Region, ranges from

                           slow in Calhoun, Franklin, Gulf, Jackson and Liberty Counties

                           moderate in Gadsden and Jefferson Counties; to fast in Leon and

                           Wakulla Counties. Local officials have to be aware of

                           population projections in order to prepare an effective hazard

                           mitigation plan for their area.

                                                                             POPULATION PROJECTIONS

                                                                                  APALACHEE REGION

                                                               COUNTY             1982             1?95

                                                               REGION           2?2,713          364,000
                                                               CALHOUN            9,270            9,60
                                                               FRANKLIN           7,894            91000
                                                               GUM                42,707           49,100
                                                               my                 10,712           11,400
                                                               JACKSON            39,657           0,500
                                                               JEFFERSON          10,993           13,200
                                                               LEON             156,043          208,400
                                                               LIBERTY            4,353            4,M
                                                               WAKULLA            li,064           17,000

                                                                                  183

                                          GRAPH 2

                         POPULATION PROJECTIONS
                400-               FOR THE APALACHEE REGION

                   71

               250 -

                200-
                                                           N
                                                           N
                                                           N
                                                           N
                                                           NN
                                                           N
                                            2              N
                                                           N

                  0-                                           =9:m
                     REG CAL   FRK  CAD  CUL   JAC  JEF   LEO   LIB  WAK

                                           COUNTY
                                      1982         1995
                     N
                     N
                     N
                     N
                     N
                     N
                     N
                     N
                     N
                     N
                     N
                     N
                     IN
                     N
                     N
                     N
                     N
                     N
                     N                                     N
                                                           N
                                                           @ XI,

                                         184

                                             APPENDIX C

                        VULNERABLE HOUSING   UNITS IN THE APALACHEE REGION

           COUNTY          SINGLE FAMILY     MULTI FAMILY    MOBILE HOME         TOTAL

           CALHOUN             2,355               75              760           3,190
           FRANKLIN            2.987              380           1,110            4,477
           GADSDEN             8,928              130           1,330            10,388
           GULF                3,316               38              943           4,297
           JACKSON             9,120              155           1,852            12,121
           JEFFERSON           2,700               10              800           3,500
           LEON               46,328             3,683          2,172            52,183
           LIBERTY                980              52              448           1,480
           UAKULLA             2,515              515              966           3,996

                                                     185

                                                        GRAPH 3
                              VULNERABLE HOUSING UNITS
                                                 APALACHEE REGION
                   60-

                   50-

                   40-

            Li c
            M 0
               U)  30

               0
     co
     CIN    z -c

                   20-

                   10 -

                                                                                         lz zZ-.Ilq
                       7-77-7-711

                        CAL     FRK      GAD     GUL     JAC      JEF     LEO      LIB    WAK

                   SINGLE FAM.                   MULTI FAMILY                      MO.B. HOMES

                                           APPENDIX D

                 The gaff ir Simpson scale, developed by Dr. -Herbert Saf fir and

                 Dr. Robert Simpson, is used to categorize hurricanes based on

                 their intensity. The scale ranges from 1 to 5,       1 being of

                 moderate strength and five being a catastrophic storm.        The

                 following is an assessment of the categories and storm

                 characteristics.

                 Category 1-

                 Winds f rom 74 to 95 miles per hour. Can cause debris from blown

                 vegetation and tree branches. Mobile homes that are poorly

                 anchored may be damaged. Surge waters can inundate coastal

                 roads

                 Category 2-

                 Winds from 96 to 110mph. Damage may be in the form of tree

                 fall, fallen signs and mobile home destruction. Storm surge can

                 peak at 12 feet, inundating coastal evacuation routes.

                 Category 3-

                 Winds from 111 to 139mph. Damage to masonry homes, signs,

                 mobile homes and buildings. Coastal structures may be

                                               187

                  destroyed, including roads, bridges and public facilities.

                  Surge will destroy boats, docks, marinas in addition to eroding

                  beaches.

                  Category 4-

                  Winds range from 131 to 155 mph. Roofs, windows and doors of

                  homes may be completely destroyed. Mobile homes will also be

                  destroyed. An eighteen foot storm surge in some areas may

                  create extensive flooding as far as 10 miles inland. Beaches

                  are greatly modified, and total evacuation of all coastal

                  residents is required.

                  Category 5-

                  Winds 155mph+. Catastrophic damage to residential, commercial

                  and industrial structures. Total evacuation of all population

                  within 10 miles of the coast.

                  The Saffir Simpson Scale is used to categorize hurricanes based

                  on their intensity. The scale ranges from 1 to 5, one being of

                  moderate strength and five being a catastrophic storm. The

                  Saffir Simpson Scale was developed by Herbert Saffir and Dr. Y

                  Robert Simpson. The following is an assessment of the

                  categories and the detriment accompanying it.

                                               188

                Category 1

                Winds from 74 to 95 miles per hour.        Can cause debris

                dislodging in the f orm of vegetation and tree branches.

                Mobile homes that are poorly anchored may be damaged. Surge

                waters can inundate coastal roads.

                Category 2 -

                Winds up to 110 mph. Damage in the f orm of tree f all, signs

                and mobile home destruction.    Surge can peak at about     12

                feet, inundating evacuation routes.

                Category 3

                Winds up to 130 mph. Damage to masonry homes, signs, mobile

                homes and buildings. Coastal structures will be destroyed,

                including roads and homes. Surge will destroy evacuation

                routes and marinas.

                Category 4

                Winds as high as 155 mph. Roof s, windows and doors of homes

                can be destroyed. All mobile homes completely uninhabitable.

                18 foot storm surge may create extensive flooding as far as

                10 miles inland. Beaches may be eroded. Total evacuation of

                                             189

                            all coastal residents is required

                            Category 5

                            Winds.155mph+. Catastrophic damage to residential,

                            commercial and industrial structures. Total evacuation of all

                            population within 10 miles of the coast.

                                                            SAFFIR/SI?M HURRICANE SCALE

                                                  CATEGORY    SURGE (FT.)     WIND SPED       DAME

                                                       1           4-5           74-95        MINIMAL
                                                       2           6-8            96-110      MWATE
                                                       3         9-2             111-130      EXTENSIVE
                                                       4         13-18           131-155      EXTREME
                                                       5           18+            155+        CATASTROPHIC

                                                                                 190

                                             BIBLIOGRAPHY

                   Ap alachee Regional Planning Council. Apalachee Regi           'on
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                   Apalachee Regional Planning Council. Hurricane Evacuation
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                   Apalachee Regional Planning Council. Hurricane Evacuation Plan.
                       1984.

                   Bureau of Economic and Business Research. 1985 Florida
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                   Coastal Area 'Planning and Development Commission. A
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                   Coastal Area Planning and Development Commission.          S t or m
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                   Coastal Resources Interagency Advisory Committee Working
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                   Coastal Zone Studies at the University of West Florida.
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                   Federal Emergency Management Agency. A Guide to Hurricane
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                   Federal Emergency Management Agency. R.Lj@SsL 2.L Federal
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                   Federal Emergency Management Agency.   Flood Insurance Study For
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                   Federal Emer gency Management Agency.  Flood  Insurance Study For
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                   Federal Emergency Management Agency. Flood    Insurance Study for
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                   Federal Emergency Management Agency. Flood    Insurance Study for
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                   Federal   Emergency    Management    Agency. Guide    For   F 1 o o d
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                    Federal Emergency Management Agency. Perspectives on Hurricane
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                    Florida Census of Housing. 1984.

                    Florida Department of Community Affairs, Division of Emergency
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                    Florida Department of Community Affairs, Division of Emergency
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                    Florida Department of  Community Affairs, Division of Local
                         Resource Planning. A local Officials Guide to Assessing
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                    Florida Department of Community Affairs, Division of Local
                         Resource Management. Floodplain Management in Florida.
                         November, 1974.

                    Florida Department of Community Affairs, Division of Local
                         Resource Management. State Temporary Housing Plan
                         Procedures    Manual.   December,1979.

                    Florida Departmen   t of Community Affairs, Division of Public
                         Safety and Planning Assistance. Hurricane Hazard Mitigation
                         at   the Local Level. October, 1980.

                    Florida Department of Community Affairs, Division of Public
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                         1982.

                    Florida Department of Community Affairs, Division of           Resource
                         Planning and Management. Selective Public Acqistition  of
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                         January,  1986.

                    Franklin County. Comprehensive Emergency Management Plan.
                         September, 1985.

                    Gadsden County. Gadsden County Comprehensive  Emergency
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                    Handmer John. The Identification of High Hazard Floodplain
                         Areas for Possible Public Acqusition. 1985.

                    Jefferson County. Comprehensive  Emergency Management
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                    Kellogg, Landon. Planning and Managing land Use in Developed
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                                                    192

                 Liberty County.   ComRES!jSnsive Emer  iency jj.@1!1,@jement Plan.
                     June, 1986.

                 National Oceanic and Atmospheric Administration, office of
                     Coastal Zone Management.     Methods For Redevelopment of
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                 Northeast Florida Regional Planning Council. Northeast
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                 Rubin, Claire B.   Natural Disaster RecoverL               Ear
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                 Salmon, Jack & Henningsen, Don. Prior Plannin.1 La!j Eost
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                 South Florida Regional Planning Council. South        Florida
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                 Southwest Florida Regional Planning Council. Hurricane
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                 Tampa Bay Regional Planning Council. Tampa Bax Regional
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                     October, T9Cf.--

                 United States Department of Commerce, Office of Ocean and
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                 United States Department of the Interior, Office of Water
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                     Floodplain    Management. Nov emb;-e-r,--1-9'ff.

                 United States Department of the Interior, Report to
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                 Wakulla County Dept. of Emergency Preparedness. Wakulla
                     County  Peacetime Emergency Management Plan.     T  6.

                 West Florida Regional Planning Council. Hurricane Loss and
                     Contingency Study. December# 1985.

                                               193

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