SECTION III: MITIGATION STRATEGY
INTRODUCTION
This portion of the Plan outlines Douglas County’s overall strategy to reduce their community’s vulnerability to the effects of natural hazards. It has been separated into the following two distinct sections:
A. Mitigation Objectives
The Mitigation Objectives are designed to support and correspond directly with the Community Goals established in Section II, and were developed to provide Douglas County with some measurable, mid-range targets (2-5 years). Each objective is numbered (i.e., “1.1”), with the first digit representing the corresponding Community Goal.
B. Mitigation Actions
The Mitigation Actions are short-term, specific measures to be undertaken by Douglas County in order to achieve the identified objectives. Most of these actions are also hazard-specific. Each action identifies the objective(s) it is intended to achieve, includes some general background information to justify the proposed action, and provides measures to assure successful and timely implementation.
Also important to note is that each Mitigation Objective and Mitigation Action is designed to be performance-based, making it easier for Douglas County to measure the Plan’s progress over time and during the Plan’s future evaluations. It is expected that while the Community Goals established in Section II may remain the same for an extended period of time, the objectives and actions included in this Mitigation Strategy will be updated and/or revised through regular enhancements to this Plan.
Objective 1.1 - Complete a multi-hazards Mitigation Plan for application and entry into the NFIP/CRS Program by the year 2005 through enhanced floodplain management activities.
Objective 1.2 - Enhance the County’s capability to conduct hazard risk assessments, demonstrate funding needs, and track mitigation activities throughout the county.
Objective 1.3 - Ensure that current emergency services are adequate to protect public health and safety.
Objective 2.1 - Increase the County’s control over development in the floodplain to ensure lives and properties are not at risk to future flood conditions.
Objective 2.2 - Preserve the natural and beneficial functions of the county’s floodplain and wetlands through continued support of natural resource protection policies and by discouraging growth in environmentally sensitive areas.
Objective 2.3 – Ensure new construction is completed using wind-resistant design techniques that will limit damage caused by high winds and reduce wind-borne debris.
Objective 3.1 - Maximize the use of available hazard mitigation grant programs to protect the County’s most vulnerable populations and structures.
Objective 3.2 - Decrease the number of FEMA-identified “repetitive loss properties” located in Douglas County by 25% by the year 2006 (currently showing four properties).
Objective 3.3 - Ensure that vital / critical facilities are protected from the effects of natural hazards to the maximum extent possible.
Objective 4.1 - Increase the level of knowledge and awareness for Douglas County residents on the potential hazards that routinely threaten the area.
Objective 4.2 - Increase the number of county residents in “Zone A” that maintain an active NFIP flood insurance policy by 10% by the year 2005 (currently 387 residents).
Objective 4.3 - Educate property owners on the affordable, individual mitigation and preparedness measures that can be taken before the next hazard event.
B. MITIGATION ACTIONS
In formulating this Mitigation Strategy, a wide range of activities were considered in order to help achieve community goals and lessen the vulnerability of Douglas County to the effects of natural hazards. In general, all of these activities fall into one of the following broad categories of mitigation techniques:
Available Mitigation Techniques
1. Prevention
Preventative activities are intended to keep hazard problems from getting worse. They are particularly effective in reducing a community’s future vulnerability, especially in areas where development has not occurred or capital improvements have not been substantial. Examples of preventative activities include:
Planning and Zoning
Open space preservation
Floodplain regulations
Stormwater management
Drainage system maintenance
Capital improvements programming
Shoreline / riverine / fault zone setbacks
2. Property Protection
Property protection measures protect existing structures by modifying buildings to withstand hazardous events, or removing structures from hazardous locations. Examples include:
Acquisition
Relocation
Building elevation
Critical facilities protection
Retrofitting (i.e., windproofing, floodproofing, seismic design standards, etc.)
Insurance
Safe rooms
3. Natural Resource Protection
Natural resource protection activities reduce the impact of natural hazards by preserving or restoring natural areas and their mitigative functions. Such areas include floodplains, wetlands and dunes. Parks, recreation or conservation agencies and organizations often implement these measures. Examples include:
Floodplain protection
Riparian buffers
Fire resistant landscaping
Fuel Breaks
Erosion and sediment control
Wetland preservation and restoration
Habitat preservation
Slope stabilization
4. Structural Projects
Structural mitigation projects are intended to lessen the impact of a hazard by modifying the environmental natural progression of the hazard event. They are usually designed by engineers and managed or maintained by public works staff. Examples include:
Reservoirs
Levees / dikes / floodwalls / seawalls
Diversions / Detention / Retention
Channel modification
Storm sewers
5. Emergency Services
Although not typically considered a “mitigation technique,” emergency service measures do minimize the impact of a hazard event on people and property. These commonly are actions taken immediately prior to, during, or in response to a hazard event.
Examples include:
Warning systems
Evacuation planning and management
Sandbagging for flood protection
Installing shutters for wind protection
6. Public Information and Awareness
Public Information and awareness activities are used to advise residents, business owners, potential property buyers, and visitors about hazards, hazardous areas, and mitigation techniques they can use to protect themselves and their property. Examples of measures to educate and inform the public include:
Outreach projects
Speaker series / demonstration events
Hazard map information
Real estate disclosure
Library materials
School children education
Hazard expositions
When considering the most appropriate mitigation techniques for Douglas County to undertake, the Mitigation Advisory Committee reviewed three (3) background studies provided as appendices to this Plan. Following this review and a group discussion, the following matrix was developed in order to target the Plan’s priorities for proposed mitigation actions:
|
Mitigation Technique |
HIGH RISK HAZARDS |
MODERATE RISK HAZARDS |
|||
|
Hail & Lightning |
Thunderstorm Wind |
Severe Winter Storm Events |
Tornado |
Flood/Flash Flood |
|
|
Prevention |
|
X |
|
|
|
|
Property Protection |
X |
X |
X |
X |
|
|
Natural Resource Protection |
|
X |
|
|
|
|
Structural Projects |
|
X |
|
|
|
|
Emergency Services |
X |
|
|
|
|
|
Public Information & Awareness |
X |
X |
X |
X |
X |
DOUGLAS COUNTY MITIGATION ACTIONS
The mitigation actions proposed for Douglas County are listed on the pages that follow. Each has been designed to achieve the goals and objectives identified through this Hazard Mitigation Plan. Each proposed action includes the following:
(1) the appropriate category for the mitigation technique;
(2) the hazard it is designed to mitigate;
(3) the objective(s) it is intended to help achieve;
(4) some general background information;
(5) the priority level for its implementation (high, moderate or low);
(6) potential funding sources, if applicable;
(7) the agency/person assigned responsibility for implementing each strategy;
(8) a target completion date.
Again, it is important to note that these mitigation actions are short-term, specific measures to be undertaken by Douglas County. It is expected this component of the Plan will be the most dynamic; it will be used as the primary indicator to measure the Plan’s progress over time and will be routinely updated and/or revised through future planning efforts.
1. Develop and adopt a “no-rise (in base flood elevation)” clause for the county’s Flood Plain Management Ordinance.
|
Category: |
Prevention |
|
Hazard: |
Flood |
|
Objective(s) Addressed: |
1.1, 2.1, 2.2 |
|
Background: |
Many floodplain permitting systems, including those that meet National Flood Insurance Program standards, allow projects outside the floodway to increase base flood elevations by up to one foot. While this may not represent a significant increase for just one project, the cumulative impact of a number of projects in the same floodplain can be significant. By prohibiting any rise throughout the 100-year floodplain, a “no rise” clause ensures that the cumulative impact of multiple permitted projects will not cause flood elevations to rise to unacceptable levels. |
|
|
|
|
Priority: |
Low |
|
Funding Sources: |
N/A |
|
Responsibility Assigned to: |
County Commission |
|
Target Completion Date: |
June 1, 2005 |
2. Advertise and promote the availability of flood insurance to county property owners by direct mail once a year.
|
Category: |
Public Information and Awareness |
|
Hazard: |
Flood |
|
Objective(s) Addressed: |
4.2, 4.3 |
|
Background: |
Douglas County joined the National Flood Insurance Program (NFIP) on March 2, 1981. There are currently 528 policies in effect, with a total coverage amount of $64.03MM. Since Douglas County joined the program, there have been 98 claims paid for a total loss paid amount of $703,981. (Source: FEMA, 2001). NFIP flood insurance policies protect property owners by offering affordable rates for protecting both structures and contents. |
|
Priority: |
High |
|
Funding Sources: |
Local |
|
Responsibility Assigned to: |
City/County Planner |
|
Target Completion Date: |
Continuous |
3. Develop a county-wide Geographic Information System (GIS) to maintain current cadastral (building/parcel) data for purposes of conducting more detailed hazard risk assessments and for tracking permitting / land use patterns.
|
Category: |
Prevention |
|
Hazard: |
All |
|
Objective(s) Addressed: |
1.2 |
|
Background: |
An integrated GIS system will greatly enhance the County’s technical capability to collect, manage, analyze and display spatially referenced data. The City of Lawrence/Douglas County has GIS capability, but a need has been identified to enhance current capabilities to include other municipalities within the county (Baldwin City, Eudora, and Lecompton) to further hazard mitigation goals. |
|
Priority: |
High |
|
Funding Sources: |
Kansas Division of Emergency Management |
|
Responsibility Assigned to: |
City/County Planner/GIS Department/EM |
|
Target Completion Date: |
June 1, 2006 |
4. Collect educational materials on individual and family preparedness/mitigation measures for property owners, and display at both the library and routinely visited county offices.
|
Category: |
Public Information & Awareness |
|
Hazard: |
All |
|
Objective(s) Addressed: |
1.1, 4.1, 4.2, 4.3 |
|
Background: |
FEMA, the Kansas Division of Emergency Management, the National Weather Service and other agencies provide information brochures and pamphlets on property protection measures at no cost to local governments. |
|
Priority: |
High |
|
Funding Sources: |
N/A |
|
Responsibility Assigned to: |
Building Inspector |
|
Target Completion Date: |
May 1, 2005 |
5. Continue to acquire and preserve parcels of land subject to repetitive flooding from voluntary property owners.
|
Category: |
Property Protection |
|
Hazard: |
Flood |
|
Objective(s) Addressed: |
1.1, 2.2, 3.1, 3.2 |
|
Background: |
Land acquisition is an effective mitigation technique to permanently eliminate the potential for damages from future flood events. Douglas County has successfully applied for and received grant funding to acquire flood-prone parcels of land in the past from voluntary and willing property owners. |
|
Priority: |
High |
|
Funding Sources: |
FEMA; Kansas Division of Emergency Management |
|
Responsibility Assigned to: |
City/County Planner |
|
Target Completion Date: |
Continuous |
6. Regularly calculate and document the amount of flood-prone property that is preserved as open space for additional credit points under the Community Rating System (CRS).
|
Category: |
Prevention |
|
Hazard: |
Flood |
|
Objective(s) Addressed: |
1.1 |
|
Background: |
CRS credit is given for areas that are permanently preserved as open space. Although credit is not given for federal lands, Douglas County maintains (and continues to expand) floodplain areas preserved as open space through land acquisition projects (i.e., HMGP), which protect parcels from development through deed restrictions. Douglas County also has floodplain land within state parks or otherwise preserved as wildlife and natural preserves, which does qualify for additional CRS credit. |
|
Priority: |
High |
|
Funding Sources: |
N/A |
|
Responsibility Assigned to: |
City/County Planner |
|
Target Completion Date: |
Continuous |
7. Identify the county’s most at-risk vital / critical facilities, and evaluate potential mitigation techniques for protecting each facility to the maximum extent possible.
|
Category: |
Prevention |
|
Hazard: |
All |
|
Objective(s) Addressed: |
1.2, 3.1, 3.3 |
|
Background: |
A thorough evaluation of potential mitigation opportunities for Douglas County’s critical facilities must still be completed. Currently, there is very little available data on these facilities. An inventory/database on critical facilities should be created and maintained by the county and shared with the Kansas Division of Emergency Management. This inventory should include information on the location and risk to each facility, and should also document any cost-effective mitigation techniques to consider when funding becomes available. |
|
|
|
|
Priority: |
Moderate |
|
Funding Sources: |
Kansas Division of Emergency Management |
|
Responsibility Assigned to: |
Emergency Manager |
|
Target Completion Date: |
December 1, 2005 |
8. Establish a local reserve fund for repairing and/or incorporating hazard mitigation measures for public facilities and infrastructure damaged by natural hazards.
|
Category: |
Prevention |
|
Hazard: |
All |
|
Objective(s) Addressed: |
3.1, 3.3 |
|
Background: |
Not all hazard events will receive disaster declarations by the state or federal government, limiting the amount of post-disaster assistance for local governments for certain events. Further, state and federal disaster assistance programs could likely require local matching funds of up to 25%. A local reserve fund should ensure Douglas County is prepared to quickly recover/rebuild from hazard events and maximize possible funding opportunities. |
|
Priority: |
Moderate |
|
Funding Sources: |
N/A |
|
Responsibility Assigned to: |
County Commission/Finance Office |
|
Target Completion Date: |
June 1, 2006 |
9. Conduct inventory/survey for the county’s emergency response services to identify any existing needs or shortfalls in terms of personnel, equipment or required resources.
|
Category: |
Emergency Services |
|
Hazard: |
All |
|
Objective(s) Addressed: |
1.3 |
|
Background: |
A survey should be completed in order to ensure the county’s current emergency services are adequate to protect public health and safety from most probable hazard events. Any identified needs or shortfalls should become documented and result in specific recommendations to the County Commission for emergency service enhancements. |
|
Priority: |
Moderate |
|
Funding Sources: |
Local |
|
Responsibility Assigned to: |
Emergency Manager |
|
Target Completion Date: |
June 1, 2005 |
10. Revise the county’s Flood Plain Management Ordinance to incorporate cumulative substantial damage or improvement requirements.
|
Category: |
Prevention |
|
Hazard: |
Flood |
|
Objective(s) Addressed: |
1.1, 2.1, 2.2 |
|
Background: |
The county’s ordinance currently does not define limits for “substantial damage” and “substantial improvement” to one-time damage repairs or improvements. Communities can reduce flood damage by counting improvement and repair projects cumulatively, so that buildings will be brought into compliance with flood protection standards earlier in their life cycle. This will require the county to maintain permit history so when cumulative repairs or improvements equal 50% of the building value, the building must be brought up to current codes for floodplain development. |
|
Priority: |
Moderate |
|
Funding Sources: |
N/A |
|
Responsibility Assigned to: |
City/County Planner |
|
Target Completion Date: |
December 1, 2005 |
11. Develop an educational flyer targeting NFIP policyholders on the Increased Costs of Compliance (ICC) coverage, to be disseminated following a flood event that results in substantial damage determinations by the county.
|
Category: |
Public Information and Awareness |
|
Hazard: |
Flood |
|
Objective(s) Addressed: |
1.1, 2.1, 2.2, 4.3 |
|
Background: |
Increased Cost of Compliance (ICC) under the NFIP provides for the payment of a claim to help pay for the cost to comply with state or community floodplain management laws or ordinances from a flood event in which a building has been declared substantially damaged. When an insured building is damaged by a flood and the state or community declares the building to be substantially damaged, ICC will help pay for the cost to elevate, flood-proof, demolish or relocate the building up to $20,000. This coverage is in addition to the building coverage for the repair of actual physical damages from the flood. |
|
Priority: |
Moderate |
|
Funding Sources: |
Local |
|
Responsibility Assigned to: |
Building Inspector |
|
Target Completion Date: |
June 1, 2005 |
12. Incorporate the inspection and management of trees that may pose a threat to the county’s routine drainage system maintenance process.
|
Category: |
Property Protection |
|
Hazard: |
Tornados and Thunderstorm Winds |
|
Objective(s) Addressed: |
2.3, 3.3 |
|
Background: |
A significant amount of property damage during high wind events results from tree failure. Trees that fall into utility lines have additional serious consequences such as causing power outages, surges, fires and other damage. The county’s ability to recognize and prevent hazardous tree conditions (through inspection, pruning or removal) is the best defense against problems and costly damages resulting from tree failure. Specifically, trees located on county property, which pose immediate threats to property, utility lines and other critical facilities should be addressed. |
|
Priority: |
Moderate |
|
Funding Sources: |
Local |
|
Responsibility Assigned to: |
City/County Public Works |
|
Target Completion Date: |
Continuous |
13. On an annual basis, contact owners of FEMA-identified repetitive loss properties and inform them of the assistance available through the federal Flood Mitigation Assistance (FMA) program, in addition to other flood protection measures.
|
Category: |
Public Information & Awareness |
|
Hazard: |
Flood |
|
Objective(s) Addressed: |
3.1, 3.2, 4.3 |
|
Background: |
Douglas County’s listing of FEMA-identified repetitive loss properties is maintained and regularly updated by the Planning Department. Each of these properties are targeted by FEMA and the State of Kansas for Flood Mitigation Assistance (FMA) funding, which will fund up to 75% of a mitigation project to eliminate future flood risk (usually through elevation or acquisition or relocation). FMA funds are awarded on an annual basis by the Kansas Division of Emergency Management. Eligible property owners should be contacted every year to promote the availability of the FMA funding and to determine their level of interest in applying for the program. |
|
Priority: |
High |
|
Funding Sources: |
Local |
|
Responsibility Assigned to: |
City/County Planner |
|
Target Completion Date: |
Continuous |
14. Augment Code enforcement and related county ordinances by encouraging wind-resistant design techniques for new residential construction during the county’s permit process.
|
Category: |
Property Protection |
|
Hazard: |
Tornadoes, Thunderstorm High Winds |
|
Objective(s) Addressed: |
2.3 |
|
Background: |
Although the state does not have building codes, local ordinances require certain building practices for wind loss reduction. Experts agree that structures built to exceed high wind provisions have a much greater chance of surviving violent windstorms. Additional techniques include adding protection for windows (i.e., shutters), anchoring door frames with multiple hinges, stiffening garage doors with additional bracing, reinforcing masonry chimneys with vertical steel, and strengthening connections between walls and the roof with hurricane straps and ties. These techniques should be promoted to building contractors and homebuyers by the county for all new residential construction, to the maximum extent possible during the building permit process. |
|
Priority: |
High |
|
Funding Sources: |
N/A |
|
Responsibility Assigned to: |
Zoning and Codes/Building Inspection/County Commission |
|
Target Completion Date: |
December 2005 |
15. Amend the county’s Manufactured Housing and Travel Trailer Park Ordinance to require tornado shelters for any new major manufactured/mobile home park with more than 30 mobile home spaces.
|
Category: |
Property Protection |
|
Hazard: |
Tornadoes |
|
Objective(s) Addressed: |
2.3 |
|
Background: |
Mobile homes are particularly vulnerable to damage from high winds. Residents, even those who live in mobile homes with tie-downs, should seek safe shelter when a tornado threatens. Tornado shelters should be constructed in mobile home parks to ensure a safe place for residents to go during a tornado event. The shelter structure, which should be designed to withstand a minimum of 120mph winds, could easily serve an alternate purpose such as a community center, laundry facility, etc. Tornado shelters should be for last minute protection for high wind events. |
|
Priority: |
Moderate |
|
Funding Sources: |
N/A |
|
Responsibility Assigned to: |
County Commission |
|
Target Completion Date: |
December 1, 2006 |
16. Annually host a public hazards workshop for the residents of Douglas County, in combination with the “Art in the Park” and/or Maple Leaf festival or other appropriate community events.
|
Category: |
Public Information & Awareness |
|
Hazard: |
All |
|
Objective(s) Addressed: |
4.1, 4.3 |
|
Background: |
A hazard workshop for county residents should be added to an established community event drawing large crowds. The workshop should be geared toward educating them on the hazards that threaten Douglas County, and the mitigation and preparedness measures available to protect them. Guest speakers from the National Weather Service, the Kansas Division of Emergency Management, and other relevant agencies should be invited to attend, and educational displays/handouts should be provided such as Flood Insurance Rate Maps, FEMA publications, safety tips, etc. |
|
|
|
|
|
|
|
Priority: |
Moderate |
|
Funding Sources: |
Local |
|
Responsibility Assigned to: |
Chamber of Commerce/Emergency Management |
|
Target Completion Date: |
Continuous |