Mitigation and Resilience Strategies

Transcription

1 Mitigation and Resilience Strategies 2018 CDBG-DR Problem Solving Clinic Atlanta, GA December 12-14, 2018

2 Welcome & Speakers Session Objectives What is mitigation and resilience and why is it important to incorporate in disaster recovery How to make impacted communities more resilient to future disasters Speakers Brandy Bones, ICF Ann Schmid, Iowa Economic Development Authority Calvin Johnson, NYC Office of Management and Budget Dennis Reinknecht and Alexis Taylor, NJ Department of Environmental Protection 2

3 Agenda Mitigation and Resilience Strategies Overview Examples of Mitigation and Resilience Activities Grantee Experiences State of Iowa New York City New Jersey 3

4 Mitigation and Resilience Strategies Overview

5 Definitions Resilience Resilience is a system s capacity to recover from adversity, a community s ability to rebound quickly from shocks and stressors while at the same time reducing future risk (Lincoln Land Institute) Mitigation Mitigation is the effort to reduce loss of life and property by lessening the impact of disasters (FEMA) Different disciplines planning, architecture, engineering, community development, infrastructure, emergency management - may define in somewhat different ways

6 Why it s important to promote resilience and mitigation Reduces current and future risk and is essential to the long-term vitality, economic well-being, and security of all communities Maximizes preparedness, saves lives, and brings benefits to a community long after recovery projects are complete, by identifying future risk and vulnerabilities Protects people and property from harm improves protection, evacuation, and emergency response Protects shoreline and riverine communities preserves residential and business uses, beaches, wildlife habitats, ecosystems and fisheries

7 Promoting resilience/mitigation can Ensure critical facilities are protected and can recover quickly Critical infrastructure and facilities power systems, storm water systems, water treatment plants, communications networks Transportation facilities and networks roads, ports, airports, public transit, fuel supply infrastructure Public facilities government offices, first responder facilities, schools, hospitals, trauma centers

8 Promoting resilience/mitigation can Protect community assets and vulnerable populations Public housing, affordable housing, senior housing, nursing homes, facilities serving the disabled and other vulnerable populations Emergency shelters, community centers, parks and recreational facilities Retail businesses, pharmacies, grocery stores Social networks: faith communities, neighborhood groups, on-line communities

9 Green, grey and blue infrastructure A mix of traditional concrete and steel infrastructure with green infrastructure Green Infrastructure (HUD definition) Integration of natural systems and processes, or engineered systems that mimic natural systems and processes, into investments in resilient infrastructure. Green infrastructure takes advantage of the services and natural defenses provided by land and water systems such as wetlands, natural areas, vegetation, sand dunes, and forests, while contributing to the health and quality of life of those in recovering communities. The HCD Act authorizes public facilities activities that may include green infrastructure approaches that restore degraded or lost natural systems and other shoreline areas to enhance storm protection and reap the many benefits that are provided by these systems. Protecting, retaining, and enhancing natural defenses should be considered as part of any coastal resilience strategy.

10 Examples of mitigation and resilience strategies Hardening critical facilities Deploying backup power systems Coastal protection (seawalls, floodgates, storm surge protections, berms, beach restoration) Storm water runoff reduction (rain gardens, bioswales, permeable pavement, retention pools) Buyout programs

11 What HUD prioritizes.. Emphasis on high quality, durability, energy efficiency, sustainability, mold resistance Support for adoption and enforcement of modern and/or resilient building codes Mitigation of hazard risk, including possible sea level rise, high winds, storm surge and flooding Implementation and compliance with Green Building Standards Identification and implementation of resilience performance standards that can be applied to each infrastructure project Alignment of infrastructure projects with other planned State and local capital improvements

12 What HUD prioritizes.. Integration of preparedness and mitigation measures into rebuilding activities Verification of how grantees will promote community-level and/or regional (e.g. multi-jurisdictional) post-disaster recovery and mitigation planning Identification of how grantees will address storm water management systems in flood impacted areas State grantees must work with local governments in the most impacted and distressed areas to identify the unmet needs and associated costs of needed storm water infrastructure improvements

13 Iowa

14 Iowa a History of Flooding 1993 $38.7 million CDBG-DR to State $15.8 million direct to 8 Entitlement Cities The primary object for the use of HUD flood funds was to repair, restore and replace facilities damaged by the floods of 1993 After Action Report 2008 $890.8 million Focus on Buy-outs, Infrastructure Improvements and Housing

15 THE DAMAGE The Greatest Disaster in Iowa s History 85 of 99 Iowa counties were Federal disaster areas

16 THE DAMAGE Cedar and Iowa River watersheds were hit hardest Cedar River Watershed Iowa River Watershed

17 THE DAMAGE 60% of the flood damage was in Cedar Rapids

18 THE DAMAGE Two small towns were completely submerged Oakville Palo

19 THE RECOVERY What Iowans said they needed post-flood Buyout programs for flooded neighborhoods Green space instead of development in floodplains Affordable housing to replace that lost during the flood Green development that infiltrates rainwater and reduces runoff Job retention via Support for flood-affected businesses Support for new and expanding businesses Support for businesses that help with flood recovery Source: State of Iowa Surveys

20 THE RECOVERY IEDA s Innovations Fast-track the CDBG-DR action plan Request waivers to allow more flexibility in addressing needs Create SuperCOGS to streamline administration of funds Adapt a database designed for homeless assistance to track funding Keep all the work in-house for efficiency and quality control Partner with grantees to create unique programs

21 THE RECOVERY CDBG-DR funds contributed to FEMA buyouts In the 100-year floodplain FEMA pays 75% of the costs Local Match pays 25% - Used CDBG-DR as local match Property deed-restricted to green space in perpetuity Non-FEMA buyouts Outside the 100-year floodplain Within the 500-year floodplain CDBG-DR funds pay 100% of buyout costs Property development restricted

22 THE RECOVERY Where the buyout money went Most to non-fema match 81% to property owners for acquisition 13% to demolition 3% to owner relocation help 2% to grant administration

23 THE RECOVERY The Result

24 THE RECOVERY Housing Programs New housing production included both rental and owner occupied Repair & rehabilitation helped owners fix damaged homes Rental rehabilitation helped landlords fixed damaged rental units Homebuyer assistance helped owners afford replacement housing Interim mortgage assistance helped owners of bought-out homes pay the mortgage on their home until the buyout Lead Paint Abatement Training trained contractors fixing damaged homes Historic Preservation Planning Grants helped mitigate effects of buyouts on historic properties

25 THE RECOVERY Where the housing money went 88% of housing money went to new production, mostly multifamily Most of the rest funded repair and rehab Homebuyer assistance and interim mortgage assistance each had less than 1% Cedar Rapids got 34% of housing program funding

26 THE RECOVERY The Result: Sustainable, affordable housing

27 THE RECOVERY Infrastructure Programs Infrastructure recovery was essential to overall recovery Transportation: roads, bridges, railways Utilities: power, water, wastewater, and storm water systems Flood mitigation: dams, levees, floodwalls, detention basins

28 THE RECOVERY Where the infrastructure money went 94 percent funded projects that FEMA did not 81 percent funded storm and sanitary sewers and flood drainage, including levees, stormwater detention and pumping stations Other projects: water and wastewater plants, spillways, parks, bridges, bypasses.

29 THE RECOVERY The Result

30 THE LEGACY OF RESILIENCE But recovery alone is not sufficient National flood damages nearly doubled between 1995 and 2004 Population in Iowa flooded areas up 18% between 1993 and 2008 Climate change and development are increasing the flood threat $1 in flood mitigation spending yields $3 5 in avoided future flood damages

31 THE LEGACY OF RESILIENCE Dams and levees are not enough These grey or hard defenses aren t keeping pace with the threat have design limitations they can only hold back so much water create flood-control arms race what protects one community may put another at greater risk may encourage risky development because the perception of protection can be greater than the reality treat the symptom (flooding) rather than the cause (increasing runoff) once a raindrop becomes a torrent, it is very difficult to stop

32 THE LEGACY OF RESILIENCE So CDBG funded these mitigation activities Floodplain mapping for land use & hazard planning, flood insurance Floodplain education for better land use decision-making Planning grants to reduce development and risk in flood-prone areas Flood insurance promotion to reduce future uninsured flood losses Sustainable building training to encourage resilient new construction Watershed Planning to rehab Iowa s flood management systems Iowa Watershed Project to install 150 small-scale green flood mitigation projects in three Iowa watersheds

33 THE LEGACY OF RESILIENCE Where the pure mitigation money went Nearly $28 million in CDBG funding was spent on pure mitigation activities: those designed solely to reduce the impact of future flooding. 54% to floodplain mapping 29% to Iowa Watershed Project 7% to watershed planning 10% to other activities

34 THE LEGACY OF RESILIENCE THE RESULTS

35 THE LEGACY OF RESILIENCE Where ALL the CDBG funding went TOTAL SPENT: $890,869,466

36 THE LEGACY OF RESILIENCE CDBG funding has helped Iowa Recover from disaster with no permanent job or economic losses Permanently remove thousands of structures from flood-prone areas Dramatically improve its housing and infrastructure Avoid billions in future losses through flood planning and mitigation Create the world-class Iowa Flood Center a national flood mitigation model

37 THE LEGACY OF RESILIENCE The story continues The Iowa Watershed Project and Iowa Watershed Approach Demonstrated significant flood mitigation effects Won Iowa an additional $96.9 million in CDBG-NDR to fund mitigation efforts Is building new mitigation projects in 9 additional Iowa Watersheds Will make Iowa even more flood resilient

38 THE LEGACY OF RESILIENCE National Disaster Resiliency CDBG-NDR The Iowa Watershed Project and Iowa Watershed Approach Collaborative planning with more than a dozen partner organizations to reduce flooding, improve water quality, and make Iowa lands and communities more resilient Consists of Housing Resiliency, Urban Infrastructure, Watershed Practices and Planning

39 National Disaster Resiliency CDBG-NDR 8 Watershed Management Areas (WMA)s 1 Urban Watershed City od Dubuque, IA

40 CDBG-NDR Admin, 5% Housing, 9% Planning, 14% Infrastructure, 32% Watersheds, 40% Housing Infrastructure Watersheds Planning Admin

41 National Disaster Resiliency CDBG-NDR Challenges of Resiliency Limitations on the locations of eligible projects: MID-URN Declared Counties Municipal Boundaries Down Stream Impacts Water doesn t seem to want to stay within municipal boundaries

42 National Disaster Resiliency CDBG-NDR Challenges of Resiliency Limitations on the locations of eligible projects: MID-URN Declared Counties Municipal Boundaries Down Stream Impacts The practice location with the most impact may not be within the MID-URN.

43 National Disaster Resiliency CDBG-NDR Challenges of Resiliency Housing Duplication of Benefits when disaster is more than 5 years before Uniform Relocation when disaster is more than 5 years before Lead Safe Housing Regulations when resiliency eligible work is limited but costs continue to increase

44 National Disaster Resiliency CDBG-NDR Other Challenges of Resiliency Varying Regulations - Program Income limit of $25,000 for NDR unlike other CDBG programs Planning Caps Resiliency is only successful with well established plans Coordination Resiliency requires many partners, so sharing information and coordinating data can be complex Eligible Areas Resiliency for the most vulnerable population may not be located within the eligible MID-URN Complicated Terminology Defining: Outcome Values, Supporting Leverage, Direct Match, Metrics, etc. can be cumbersome

45 National Disaster Resiliency CDBG-NDR Thank You! Ann Schmid Disaster Recovery Team Leader Historic Preservation Specialist IOWA ECONOMIC DEVELOPMENT AUTHORITY 200 East Grand Avenue Des Moines, Iowa PH: iowaeconomicdevelopment.com

46 City of New York

47 City of New York Hurricane Sandy Resiliency and Recovery Background and Framework

48 Hurricane Sandy Background Hurricane Sandy landfall in NYC on October 29, 2012 during high tide and a full moon 51 square miles (17% of NYC land mass) flooded 88,700 buildings inundated, including 23,400 businesses 10.3% of NYC s population (846,056) lived in the inundation area ½ of the housing flooded was outside the FEMA 100-year flood plain ½ the housing in the 100-year flood plain had flood insurance Approximately 2 million New Yorkers lost power, many for weeks or longer 44 lives lost In total, $19 billion in damages and lost economic activity

49 City of New York, NY Hurricane Sandy Financial Background New York City - entitlement community - direct grantee for two HUD grants for Hurricane Sandy recovery and resiliency under PL NYC Office of Management & Budget as lead agency Close coordination with: Mayor s Office of Recovery and Resiliency Mayor s Office of Housing Recovery Operations Key City agencies such as Department of Design and Construction and Department of Housing Preservation and Development $4.214 billion CDBG-Disaster Recovery grant Majority of funding (almost $3 billion) for Housing recovery $2.213 billion for Build It Back single-family program $426 million for multifamily program $317 million for public housing Over $530 million for FEMA match (10% generally, or 25% match for HMGP) Includes $335 million and $20 million in Rebuild By Design funds for two projects $176 million CDBG-National Disaster Resilience grant NYC is also anticipating over $10 billion in funding from FEMA and other Federal agencies

50 City of New York CDBG-DR and CDBG-NDR Investments in Mitigation and Connection to Other Funds CDBG-DR Action Program Name Plan Allocation ($M) Housing $2,967 Build It Back (Single- and Multifamily) Description of Mitigation Investment $2,650 includes home elevations, acquisitions/buyouts Public Housing - NYCHA $317 includes match to FEMA PA funds Business $91 includes resiliency investments in small businesses Infrastructure and Other City Services $419 Public Services Debris Removal/Clearance Rehab/Reconstruction of Public Facilities $225 includes match to FEMA PA funds $7 includes match to FEMA PA funds $91 includes match to FEMA PA; $48M for Rockaway Boardwalk Interim Assistance $97 includes match to FEMA PA; Rapid Repair STEP program Resiliency $473 Raise Shoreline and Coney Island Breezy Point Risk Mitigation Sheepshead Bay Courts Infrastructure Resiliency Property Purchase Program Staten Island University Hospital Rebuild by Design - East Side Coastal Resiliency $23 leveraged by City capital $15 match to FEMA 404 HMGP $20 resiliency upgrades for infrastructure with Build It Back $5 resiliency program for buyouts and acquisitions $28 includes match to FEMA 404 HMGP funds $338 result of international competition; leveraged by City capital Rebuild by Design - Hunts Point Lifelines $45 result of international competition; leveraged by City capital Planning & Admin $263 includes funds to advance resiliency planning TOTAL CDBG-DR $4,214 CDBG-NDR: Two Bridges $176 result of national competition; leveraged by City capital TOTAL HUD funding for NYC $4,390

51 SIRR OneNYC: Resiliency Planning Blueprint June 2013: A Stronger, More Resilient New York, comprehensive plan with actionable recommendations for rebuilding the communities impacted by Sandy and increasing the resilience of infrastructure and buildings citywide April 2015: One New York: The Plan for a Strong and Just City, comprehensive plan for a sustainable and resilient city addressing social, economic, and environmental challenges OneNYC annual progress reports, targeting comprehensive update for Earth Day 2019 OneNYC annual updates inform Action Plan amendments, allow NYC resiliency goals to evolve in real-time

52 OneNYC: Our Resilient City Since Sandy, the City has advanced the first phase of its coastal protection plan; along with investments and policies in buildings, infrastructure, and communities citywide. Investing over $20 billion in climate change adaptation citywide Over $14 billion of funding for this resiliency plan is from FEMA and from HUD Mix of traditional engineering and naturebased infrastructure for coastal protection Investments tailored to specific local risks and conditions no silver bullet solution

53 City of New York Hurricane Sandy Resiliency and Recovery Examples of Resiliency Projects and Programs: Planning, Housing, Business, and Infrastructure

54 Climate Resiliency Design Guidelines Meant to create a unified approach for incorporating climate risk data to inform the NYC Capital plan and the NYC Building Code and Engineering Standards used by City Agencies For use by NYC agencies, engineers, architects, landscape architects and planners for new capital construction and major rehabilitations Covers buildings, infrastructure, and landscapes Not applicable to coastal protection projects and private development In April 2018, the Climate Resiliency Design Guidelines 2.0 were released to utilize these collected data from the New York Panel on Climate Change to mitigate the effects of: Extreme heat Extreme precipitation Coastal storms Sea level rise

55 Climate Resiliency Design Guidelines HISTORIC CLIMATE DATA FORWARD LOOKING CLIMATE DATA NYC BUILDING CODE AND ENGINEERING STANDARDS Mayor s Office: Climate Resiliency Design Guidelines Design & Construction Transportation Environmental Protection Housing Preservation & Development Parks and Recreation

56 Resilient Edgemere Community Plan Goals and Strategies Protect the neighborhood from flooding. Edgemere is a vulnerable waterfront community where residents have limited access to the bay and beach. Create resilient housing and maintain low density feel. Many still live in Sandy-damaged homes and the area's housing market has not fully recovered from the Recession. Improve streets and transportation. Commuting around and off of the peninsula is a burden due to the slow, unreliable, and infrequent transit service. Increase neighborhood amenities. Residents mostly shop outside of the neighborhood because limited retail and basic amenities exist.

57 Resilient Edgemere Community Plan

58 Broad Channel Yard Expansion Program Image: Broad Channel Civic Association Image: 66squarefeet Broad Channel was one of the hardest hit communities during Hurricane Sandy and is vulnerable to continued flood hazards and sea level rise. The Build It Back Acquisition and Buyout Program provided relief to Sandy affected New Yorkers. Through this program, properties were voluntarily sold by their previous owners. Through community engagement for Sandy recovery, these properties were determined for open space use due to flood hazard risks. These properties are being offered for purchase to the nextdoor neighbors, consistent with the Broad Channel Civic Association plan to improve view corridors to Jamaica Bay. The City and its non-profit partner Project Rebuild, Inc., have created the Broad Channel Yard Expansion Program to offer the opportunity for next-door neighbors to purchase these properties.

59 Broad Channel Yard Expansion Program The Broad Channel Yard Expansion Program offers the opportunity for next-door neighbors to purchase these properties for a nominal minimum bid. The program aligns with the local civic association s goal to improve view corridors to Jamaica Bay and was announced at the Broad Channel Civic Association on October 26, Sites must be maintained as open space in perpetuity, as enforced through a permanent deed restriction. There are currently 13 sites being sold through the program. ELIGIBLE ELIGIBLE PUBLIC STREET YARD EXPANSION PROPERTY ELIGIBLE PUBLIC STREET ELIGIBLE NOT ELIGIBLE

60 RISE: NYC - Resiliency Innovations for a Stronger Economy 95% of directly impacted business have 50 employees or less RISE: NYC is a $30 million program administered by EDC 11 technologies were selected from 200 applications in a two-stage competition. Building systems - solutions such as Flood Panels that improve the resiliency of critical building components before, during, and after a storm. Telecom networks - help small businesses stay connected and operating, even when traditional communication networks are down. Energy technologies - clean, resilient power, keeping small businesses up and running even during grid failures

61 RISE: NYC NYC Daylighting NYC Daylighting has been selected to install passive lighting systems in 13 small business locations. The system allows natural light to enter interior spaces out-of-reach for traditional skylights. In the event of a power outage, natural light during the day will allow generator power to be conserved for critical uses.

62 Rockaway Boardwalk 5.6 miles of reconstructed boardwalk elevated out of the 100-year floodplain Steel-reinforced concrete deck 6 miles of reinforced dunes Erosion control features Collaborative design process with residents Completed Memorial Day 2017 Example of HUD funding used as local match to FEMA Section 428 Public Assistance Alternatives Procedures Pilot grant

63 Rockaway Boardwalk Before (post-sandy): After (incorporating resiliency features):

64 City of New York Hurricane Sandy Resiliency and Recovery Lessons Learned, Next Steps, and Further Discussion

65 Lessons Learned, Next Steps, and Further Discussion Resiliency and mitigation funding from HUD is not the only source of funding for projects At the Federal level, also FEMA, US Army Corp of Engineers and others Federal funds are opportunities to leverage additional investments at the State and local level Coordination with insurance Other non-public investments Mitigation and resiliency projects are most successful if done in partnership with and coordinated amongst various stakeholders Process and efficiency recommendations, particularly on multiples funds for a given project Lead agency for match Uniform guidance amongst Federal agencies for Benefit Cost Ratio calculation Updates to discount rates to capture mitigation benefits Alignment of rules and regulations, particularly prevailing wage, environmental review, sequencing and timing Preventative investments in resiliency Federal resiliency funding has generally been tied to a particular disaster Moving forward, the needs for mitigation and resiliency will continue and likely increase Costs overall can be less expensive if investments are made pre-storm and not just in response

66 Contact Information: Calvin Johnson New York City Mayor s Office of Management & Budget Assistant Director, CDBG-DR johnsonc@omb.nyc.gov

67 New Jersey

68

69 Photo of coastal flooding in Mantoloking, New Jersey. Taken from a New Jersey Air National Guard Helicopter. Credit: NJNG/ Scott Anema.

70

71 Atlantic City Seawall 71 REBUILD BY DESIGN MEADOWLANDS

72 Pompton Lakes Dam

73 Rebuild by Design Building Flood Resilience in Urban Environments 73

74 Rebuild by Design RESIST Delay Store Discharge Hudson River Hoboken Weehawken Jersey City New Jersey

75

76 Three Actions for Success Build an effective team Create a project steering committee Maintain community support

77 Build an effective team Environmental Assessment Financial Community Outreach Inspection & Compliance TEAM Remediation & Construction Land Acquisition URA Permitting

78 Create a project steering committee State HUD Steering Committee Federal Agencies Mayors Legal

79 Maintain Community Support Meet Regularly Keep your Website Up to Date Continue outreach throughout the project

80 NDR REGIONAL STORMWATER INFRASTRUCTURE TOOLKIT CDBG-DR Problem Solving Clinic December 13, 2018

81 NDR Funding

82 Stormwater Infrastructure Toolkit Modules

83 History of Stormwater Management in NJ Stormwater drainage systems were typically inherited by towns from developers of neighborhoods No mechanism exists for collecting dedicated funds for stormwater O&M 84 Stormwater system can be characterized as an orphan utility System maintenance usually funded from property taxes Reactive vs. Proactive

84 Module 1, Operations & Maintenance C A B

85 Module 1, Operations & Maintenance C A B Asset Management Plans and O&M Asset Management Plans and O&M

86 Asset management is maintaining a desired level of service (LOS) at Acceptable Level of Risk for what you want your assets to provide at the lowest life cycle cost. Overview 87

87 1. WHAT do we have? 2. Where is it located? 3. WHAT is its Condition? Current State of Assets Asset Registry Planning

88 1. WHAT do we have? 2. WHERE is it located? 3. WHAT is its Condition? Current State of Assets Create interactive field maps Accessible through secure internet connection Updated based on work completed work orders tracked in a maintenance management system Asset Condition NASSCO PACP Condition Score

89 Module 1, Operations & Maintenance C A B Asset Management Plans and O&M Documentation and Tracking Systems

90 Created matrix of systems & requirements (System Feature Index)

91 92 Tool Workflow 1) Answer a series of questions 2) Tool produces a recommended tier 3) Organization interprets results

92 93 Tool Results

93 94 Making Smarter Decisions Related to Utility Management Knowing your assets, their condition, how critical they are, and their risk of failure Employing technology to track assets, analyze assets, and to predict problem areas Implementing & improving processes to support more effective PM, Investing in people through proper training to ensure buy-in and stewardship

94 Module 1, Operations & Maintenance C A B Asset Management Plans and O&M Regional Stormwater Entity

95 Value of Improved Stormwater O&M Major drivers: Reducing flooding, improving public safety, and regulatory compliance Preventative maintenance is cheaper than replacement, extends the life of infrastructure Public safety includes avoidance of emergency issues such as sink holes, pipe failures, road damage Reduces incidences of maintenance - related flooding (i.e. clogged catch basins 96 NDR REGIONAL STORMWATER INFRASTRUCTURE TOOLKIT

96

97 98 Deliverable - Module 2 Jobs Training Jobs Training Best Practices Toolkit Analysis of jobs training and certification programs Evaluation of training and certification programs Programs that are successful and replicable in New Jersey Meadowlands Pilot Options for job training programs and certifications specific to the needs and objectives of the project area

98 What HUD prioritizes.. Integration of preparedness and mitigation measures into rebuilding activities Verification of how grantees will promote community-level and/or regional (e.g. multi-jurisdictional) post-disaster recovery and mitigation planning Identification of how grantees will address storm water management systems in flood impacted areas State grantees must work with local governments in the most impacted and distressed areas to identify the unmet needs and associated costs of needed storm water infrastructure improvements

99 101 Fits our Long-term Goals Resilience Regional Applicability Promote Resilience Projects Establish long-term sustainable flood resilience O&M techniques and strategies Develop an adaptive framework so the toolkit can be replicable for other regions Increase the number of regional flood risk reduction plans and projects

100 Questions