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Hurricane Loss Reduction for Housing in Florida

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Hurricane Loss Reduction for Housing in Florida HURRICANE LOSS REDUCTION FOR HOUSING IN FLORIDA A Research Project of the International Hurricane Center at Florida International University Funded by the Florida Department of Community Affairs Under Contract 02-RC-11-13-00-05-001 FINAL REPORT VOLUME 2 DELIVERABLE No. 5 DUE JUNE 30, 2002 PREPARED BY THE INTERNATIONAL HURRICANE CENTER FLORIDA INTERNATIONAL UNIVERSITY Miami, FL 33199 1 Eliminating State and Local Barriers to Upgrading Mobile Homes and Communities Volume 2 Chapter I 2 1. EXECUTIVE SUMMARY The team from the University of South Florida School of Architecture and Community Design focused on two key issues: · Eliminating state, local barriers to upgrading existing mobile homes and communities · Research and development related to hurricane loss reduction devices and techniques for site built houses. The team focused primarily on west central Florida, with a particular emphasis on Polk County. This report is based on: analyses of codes and plans and local land use laws; interviews with manufactured home park residents, managers, manufacturers, and agents/brokers; interviews and discussions with architects and engineers who practice in hurricane prone areas; meetings with staff from building and planning offices, and mobile home park owners; observations of mobile home parks; analyses of storm data; literature and internet searches; and development of GIS based maps The team identified numerous issues of concern and need for future study: · Nearly 1% of the mobile homes in Polk County have been damaged in significant storms over the last nine years, despite the lack of hurricanes that hit the area directly. · There is duplication and/or contradiction of information in zoning codes and building codes regarding mobile homes. The resulting lack of clarity (as to which code addresses important health safety and welfare issues) causes accountability problems. · There are promising options for replatting and redeveloping mobile communities into more sustainable layouts, with safer, permanent houses. Zoning laws, cost, real estate ownership issues, and traffic codes may obstruct redevelopment. · Information gaps, such as inaccessible information regarding codes, inhibit oversight of mobile home installation and maintenance by renters, owners, and building officials. § Architects and engineers are not trained to understand and deal with hurricane threats as regular parts of their education, internships, and examination. There is no single cohesive textbook on the subject. § The Florida Building Code’s prescriptive standards assure that components of houses should survive the full range of hurricane effects of a significant storm. However, because of the lack of performance standards, there is little assurance 3 that the whole building will survive. There is potential for more significant linking of code requirements to hurricane categories. § Several alternatives to conventional framing show are promising in hurricane resistance, affordability, energy efficiency and aesthetics. These materials include structural insulated panels, polystyrene blocks, structural steel, etc. § The team recommends post disaster assessments of: a) communities designed using new urbanist principles, b) landscapes, c) buildings designed under the new Florida Building Code, d) houses built with alternative methods. 4 2. INTRODUCTION 2.1 Objectives 2.1.1 Eliminating state, local barriers to upgrading existing mobile homes and communities. Initial research from phase I of this project indicates that there are significant federal, state and local barriers to upgrading existing mobile homes and communities in Florida. Many of these barriers, which include knowledge gaps and regulatory barriers, are unintentional and put mobile home residents at risk. The USF research team identified and investigated these issues in land use regulations, community design guidelines, and building/zoning codes. The work focuses on the west central region of Florida. Among the key areas of investigation are: zoning and building code issues (additions, tie downs, maintenance, incompatible land use, hazard zones); platting issues options for replatting mobile home parks, case studies of small lot communities, options for replacement structures); and information gaps. 2.1.2 Research and development related to hurricane loss reduction devices and techniques for site built houses. The team developed a “best practices” outline to the planning, siting, design, and maintenance of residential communities in hurricane prone areas. In particular, the guide addresses areas of concern to architects and other house designers. It focuses on community (public Information/policy, infrastructure, landscape); building form (geometry, roof, attachments, interiors); and building technology (fenestration, roof/sheathing, structure, alternative construction, maintenance). In each category, the team developed guidelines for: best practices; supporting codes, guidelines, statutes; incentives for implementation; barriers to implementation; need for information/future study; and references. 2.2 Methodology This report is based on: § Analyses of zoning codes, comprehensive plans, floodplain management plans, storm water management, and other local land use laws from all relevant 5 jurisdictions in Polk counties. Polk includes 18 local governments. (17 municipalities and the unincorporated county) § Interviews with manufactured home park residents, managers, manufacturers, and agents/brokers. § Meetings with staff from building and planning offices, and mobile home park owners § Observations of mobile home park conditions. (In addition to work completed in phase I, the team looked at three parks from each of three counties – Pinellas, Hillsborough, and Polk. The subject parks were chosen by a combination of random selection, park accessibility, and the willingness of interviewees to participate in the process.) § Interviews and discussions with architects and engineers who practice in hurricane and earthquake prone areas § Analyses of storm data § Development of an additional three in depth case studies of 3 mobile home parks in Polk County. · Literature and internet searches · Development of GIS based maps to compare mobile home locations to natural hazard zones, land use districts, and other conditions (in order to determine patterns of vulnerability). 2.3 Research Team The team members for this project are all associated with the University of South Florida School of Architecture and Community Design (Florida Center for Community Design and Research). The principal investigator is Associate Professor Stephen Schreiber. Faculty contributors include Associate Professor T. Trent Green and Visiting Assistant Professor George Epolito. Research assistants on the project are architecture students Deepangkar Bhattacharjee, Mike Dailey, Swapnali Salunkhe, and Kevin Nickorick. 6 3. ELIMINATING BARRIERS TO UPGRADING EXISTING MOBILE HOMES AND COMMUNITIES. 3.1 Background Throughout the state of Florida, and particularly in the west central Florida region, there are significant numbers of older mobile homes in use today. Many of these structures were installed between the early 1950’s and late 1980’s and have been consistently inhabited ever since. This category of mobile home tends to be the most vulnerable under adverse weather conditions. A combination of factors-- age, sustained use, inability to be upgraded or renovated to comply with current codes and standards, substandard modifications-- contribute to unsafe and hazardous conditions. The fact that most of these structures were built under less stringent regulations, using construction methods that would be considered “outdated” today, suggests that many of these mobile homes should be retired from further use. Most of these mobile home structures are of the “singlewide” configuration and were installed on either leased or purchased lots. Invariably, these structures incorporated approximately 500 to 700 square feet of floor area in a rectangular unit, and occupied regular-shaped parcels - some with typical dimensions as small as 25 feet by 40 feet It is unlikely that the manufactured housing industry will implement significant new changes in the foreseeable future, to further minimize the risk of property loss and damage due to hurricanes or other severe weather conditions. While modest improvements have been made in enhancing the structural integrity of mobile homes over the last two decades, current trends in this type of construction appear to be focused on increased space, the inclusion of more amenity features and enhanced curb appeal or character. This being the case, newer mobile homes have become much more appealing and marketable to that segment of the general public that will consider this form of housing as a first choice, or as an alternative to conventional site-built houses. As the inventory of newer, mostly doublewide mobile homes are purchased and installed; there is an increasing supply of older ones that remain on the market and in continuous use. According to the Tampa Tribune: “Mobile homes seem to be popular among winter residents and retirees and are increasingly popular with families on limited budgets. ‘You can get in a brand new mobile home for as little as $28,000,’ said Scott Davis, a sales executive at Oakwood Homes. Mobile homes range in cost from a few thousand dollars to 7 more than $100,000. Rent ranges from less than $100 per week to several hundred dollars per month.” (Alberto) Mobile homes, while affordable and
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