Hurricane Floyd, the State's Worst Disaster in History, Left a Trail Of

Home , Hurricane Floyd, Hurricane Fran

Hurricane Floyd, the state’s worst disaster in history, left a trail of misery across eastern North Carolina: towns invaded by floodwater, homes destroyed or severely damaged, families uprooted, people left jobless, dreams shattered.

Clockwise from top right: Robert Miller, Raleigh News & Observer; Christobal Perez, Raleigh News & Observer; Ed Hayden, Goldsboro News-Argus; Sher Stoneman, Raleigh News & Observer; Christobal Perez, Raleigh News & Observer. Opposite page: inset, Chuck Liddy, Raleigh News & Observer; hurricane photo courtesy of the National Oceanic and Atmospheric Administration.

2 popular government, spring 2000 COVER ARTICLE Preventing Disasters through “Hazard orth Carolina is blessed with an abundance of rich natural resources, as varied and as vital as the people who live here. Its Mitigation” beaches are clean, its mountains i Nspectacular, its rivers and streams plen- tiful, and its climate temperate. This bounty provides the state’s residents ANNA K. SCHWAB with a wonderful place to call home, but there also are inherent dangers. From time to time, hurricanes ravage the coast, ice storms immobilize the mountain areas, and heavy rains cause the waterways to flood the surrounding countryside. Storms, floods, earthquakes, and wildfires are a part of the natural balance of the environment. A storm that levels dunes displaces the sand to another part of the beach system. A wild- fire that blackens a forest allows new growth to flourish. But when such events occur where people have made

The author is coordinator of the Hazard Mitigation Planning Initiative, a joint project of the Depart- ment of City and Regional Planning at UNC–CH and the Division of Emergency Management in the North Carolina Department of Crime Control and Public Safety. She thanks Dr. Gavin Smith and Darrin Punchard of the Division of Emergency Management for providing data and insight.

spring 2000, popular government 3 A Marine Corps helicopter rescues a trucker stranded by flooding on I-95 near Rocky Mount.

thousands of people from their homes and structurally damaging or destroying entire neighborhoods and down- towns, the flooding may have serious environmental consequences. The ac- tual extent of these problems is not yet known, but many believe that the floodwaters were polluted with waste from hog lagoons, sewage from septic tanks and municipal treatment plants, hazardous materials from chemical facilities and factories, oil and gas from storage tanks and salvage yards, dead animals from farms, and numerous other contaminants. Floods of the magnitude caused by Hurricane Floyd also have more insidi- ous effects. The long-range economic consequences may far surpass the costs of replacing damaged structures and repairing infrastructure. People have been out of work while the floodwaters have invaded employment centers, and many businesses will never recover. Some people will leave the region, changing the workforce for businesses that do remain viable. Farmers have not only lost this year’s crop but suffered losses of farm equipment and other capital. Many may not recoup the loss, even after insurance payments and gov- Raleigh News & Observer ernment relief funds have been distrib- uted. (For estimates of the physical damage from Hurricane Floyd, see the sidebar on page 5.) Mel Nathanson, Perhaps most complex of all are the their homes and built their businesses, the disastrous effects of such natural changed social and psychological cir- the results can be devastating. Weather- events. [For an article on recovery ef- cumstances following Floyd. Citizens and geology-related phenomena can forts following Hurricane Floyd, see have been emotionally traumatized in wreak havoc in towns and communi- page 40.] ways that may manifest themselves in ties, disrupting the flow of goods and increased incidents of domestic abuse, services, destroying property, and un- Hurricane Floyd and depression, anxiety, and substance settling people’s lives. The more dra- abuse. Communities have lost civic and Its Aftermath matic natural events have even caused social centers, recreational facilities, death and injury. Hurricane Floyd was a storm whose schools, and other identifying elements This article summarizes the wide- impact will be felt for years. The un- of their character. Although in some spread effects of North Carolina’s precedented flooding in many parts of communities the shared experience of worst disaster, the flooding brought on eastern North Carolina following the disaster may have pulled the people to- by Hurricane Floyd, and then describes September 1999 storm has ramifica- gether, in others the disaster itself may an initiative of the state government to tions far beyond the obviously high have fractured the entire sense of place promote local planning that may lessen water levels. In addition to displacing irrevocably.

4 popular government, spring 2000 Hurricane Floyd Damage Estimates

Scope of Impact Utilities Dams • About 6,600 square miles of • Seven community water systems in • Seven dams in Nash, Wake, Wayne, eastern North Carolina (about Edgecombe, Nash, and New Han- and Wilson counties were either 23 percent) were under floodwater over counties remained uncleared receiving emergency attention or on September 23–24, 1999. as of November 30, nearly eleven undergoing fundamental repair. weeks after Hurricane Floyd hit Also, one dam in Robeson County Fatalities North Carolina. Uncleared water was being examined to determine • As of January 27, 2000, fifty-two systems are those with “Boil Water its hazard classification. fatalities were confirmed by the Advisory,” “Boil Water Notice,” or North Carolina Medical Underinsured and Uninsured “System Not in Use” status. Examiner’s Office. Housing Losses • At the peak of the disaster, • Eighty-one percent of the damaged Rescue Operations 1.5 million customers were with- homes were primary residences. • More than 1,400 swift-water out power. Costs were as follows: • Forty-six percent of the affected evacuations were performed by the Debris removal: $24 million population had no insurance, or U.S. Coast Guard (the lead agency), Pipeline replacement: fire insurance only. the U.S. Air Force, the U.S. Army, $30.5 million • Damage estimates (from FEMA, as the U.S. Marines, North Carolina Utility restoration: $97.5 million of November 29) were as follows: Marine Fisheries, the North • Twenty-four wastewater treatment Minimal damage ($2,500 or Carolina National Guard, North plants were flooded or severely less): 11,807 homes Carolina Wildlife Resources, and damaged. Minor damage ($2,500–$5,000): private citizens. Transportation 2,765 homes Flood Levels • At one time, nearly 1,000 roads Major damage ($5,000– The flooding set new records: were closed, including I-40 from $10,000): 2,565 homes Sampson to New Hanover coun- Destroyed: 2,912 homes • In Tarboro the Tar River crested at ties, I-95 from Johnston County to Total: 20,049 homes 40.92 feet. Flood stage is 19 feet, the Virginia line, and U.S. 70 from and the previous crest was 34 feet Claims Submitted to National Flood Johnston County to the coast. in 1919. Insurance Program for Housing • Rail lines were closed in North • In Rocky Mount the Tar River Losses Carolina, affecting Amtrak’s East crested at 32.2 feet. Flood stage is • Twelve thousand claims were Coast routes. 15 feet, and the previous crest was received, totaling $61.1 million in • The Department of Transporta- 23.9 feet in 1998. losses. tion’s Customer Service Line re- • In Goldsboro the Neuse River ceived more than 100,000 calls Agricultural Losses crested at 28.8 feet. Flood stage is on Saturday and Sunday after the • As of November 1, total agricul- 14 feet, and the previous crest was storm. tural losses were $812.6 million. 27.4 in 1929. • Ten bridges were washed out, and • Livestock losses totaled $13 County Impact 44 road sections were closed as a million. The number of dead • Sixty-six of the state’s 100 counties result of Hurricanes Floyd and animals broke down as follows: were declared disaster areas. Irene. Hogs: 30,500 • A 500-year flood (the kind of flood • Topsail Inlet (in Pender County) Chickens: 2.2 million that has a 1-in-500 chance of was closed on November 9 for Turkeys: 737,000 occurring each year) occurred on dredging. Cattle: 880 the Tar and Neuse rivers. • As of November 23, highway • Crop losses: $543.3 million • Hurricane Floyd was the worst construction costs were $150.6 • Farm structure losses: disaster in North Carolina history; million, with 77 roads still out. $256.3 million the cost is expected to exceed that As of November 23, bridges and • Forestry and Fishery Losses of Hurricane Fran ($6 billion). drainage-structure construction • Forestry losses: $89.4 million • Almost 75,100 people have applied costs were $75 million, with 13 • Fishery losses: $19 million for recovery assistance. bridges still out. Disaster Unemployment Assistance Note: All figures are approximate. They were supplied by Tom Hegele, Chief, Education • Nearly 5,100 applications for and Emergency Information Section, North Carolina Division of Emergency Management, disaster unemployment assistance and were current as of November 29, 1999, unless otherwise noted. were approved, worth $1.9 million.

spring 2000, popular government 5 Keeping Hazards from ous events are on the rise from factors volve strengthening buildings (for ex- Becoming Disasters such as global warming, sea-level rise, ample, remodeling a structure to with- and fluctuations in weather patterns. In stand earthquake tremors), modifying Although Hurricane Floyd is the worst addition, development is growing rap- the environment (for example, con- disaster North Carolina has ever expe- idly in numerous areas of risk. It is be- structing a levee or another type of bar- rienced, it is by no means the first. Hur- coming more and more apparent that rier to protect property from rising ricane Hazel ravaged the coastline in something must be done to prevent floodwaters), using avoidance tech- 1954. The “Ash Wednesday Storm” of hazard-related devastation from occur- niques (for instance, conserving high- 1962 was a fierce winter storm that sur- ring again and again in North Carolina. risk property as public open space), and vivors still have not forgotten. Hurri- Although people cannot eliminate haz- adopting other public policies (such as cane Opal in 1995 and Hurricane Ber- ards, they can prevent disasters through refusing to extend municipal services tha in 1996 weakened the coastline just “mitigation.” Hazard mitigation en- and utilities to undeveloped areas in in time for Hurricane Fran, which until compasses a range of activities under- hazard zones). Floyd took the spot as worst disaster in taken by governments, corporations, the state. builders, developers, and individual Mitigation at the Local Level Many scientists theorize that hazard- business and home owners. It can in- Undertaking mitigation at the local level is a particularly effective way to create safer, more hazard-resilient communities. Although the economic effect of large disasters like Hurricane Floyd is statewide, the brunt of the physical, financial, and emotional impact is felt in the settings in which people live and work—in the towns, neighborhoods, homes, businesses, schools, and farms damaged or demolished. Knowing from experience the extent to which Mother Nature can transform the landscape, the people of these communities may be willing to support changes that could prevent a repeat experience. The power of local decision makers to affect the future is substantial. They regulate land- use patterns and building practices, make many public spending and taxa- tion decisions, and largely determine growth and development policy. Local resolution can control to a large degree where, when, and how homes, businesses, schools, and farms are built. Following a disaster, many local governments take advantage of federal and state aid to decrease their vulnerability to natural hazards, and an active, en- gaged community can use the window of opportunity that arises during the reconstruction period to build a community that is better than before. Ideally a community that engages in hazard mitigation will come up with an overall program ensuring that individual mitigation projects are not carried out in a disjointed, ad hoc fashion.

At the North Carolina State Fair, a Raleigh News & Observer Raleigh consultant for the Federal Emergency Management Agency uses a scale model to demonstrate the impact of flooding

Robert Willett, Willett, Robert on towns.

6 popular government, spring 2000 A community-wide mitigation pro- and flexibility among the communities gram can be effective in tying all lo- enrolled in HMPI, there are some stan- HMPI Demonstration cal activities together so that no single dards to shape and guide the various project detracts from the overall goal of plans being formulated. The following Communities creating a safer community. For ex- description of the planning process is Boone ample, the Federal Emergency Manage- adapted from documents prepared for Carteret County ment Agency (FEMA) has granted use by HMPI and other communities to Craven County thousands of dollars to local North guide local planning activities (to ob- Elizabethtown Carolina governments through the tain more information, including a Franklin County Hazard Mitigation Grant Program copy of the planning guide, see the side- Johnston County (HMGP) to acquire flooded property, bar below for contact data). Lenoir County remove it from the marketplace, and re- Mecklenburg County locate the resident homeowners and Conducting Background Studies New Hanover County businesses to other, safer areas. But re- The first step in the planning process Pender County moving structures from isolated parcels involves information gathering. Basic Washington is not nearly as effective as placing an studies that must be performed before a entire block or riverfront out of harm’s way and integrating the land into the local park or greenway system so that the hazardous area will remain unde- Becoming an HMPI/ veloped in perpetuity, as well as con- Project Impact Community tribute to the community’s open space program. he Division of Emergency Management is eager to expand the Haz- One way that local governments can Tard Mitigation Planning Initiative (HMPI) to communities across the achieve an integrated approach to haz- state, and it continues to seek local governments that have demonstrated ard mitigation is by creating and imple- a commitment to hazard mitigation. As mitigation funds become avail- menting a local hazard mitigation plan. able, the division will continue to award mitigation planning grants to Under the Hazard Mitigation Planning local governments that have applied for and are selected as new HMPI Initiative (HMPI), a program estab- communities. Local governments are encouraged to prepare and submit lished by the Mitigation Section of the grant applications for participation in HMPI even if adequate funding is Division of Emergency Management in not currently available through the division. the North Carolina Department of An essential component of HMPI is Project Impact, an initiative Crime Control and Public Safety, local launched by the Federal Emergency Management Agency (FEMA) in Oc- governments throughout the state are tober 1997 in response to rapidly escalating disaster costs and the grow- breaking new ground in mitigation ing need to assist communities in protecting lives and property. Project Im- planning. With grants from HMPI, pact communities receive grant funding and technical assistance from eleven cities and counties are formulat- both the federal and the state government to begin addressing their poten- ing hazard mitigation plans that will tial hazards and implementing disaster prevention strategies. Such strat- serve as models for other communities egies may include but are not limited to hazard mitigation planning, policy in the state (see the sidebar on this page and regulatory standards, public awareness and education programs, and for a list of the communities). These structural mitigation projects. Demonstration Communities are re- The designation of Project Impact communities occurs annually in co- ceiving technical assistance and guid- ordination with FEMA. Each year the Division of Emergency Manage- ance in formulating their plans, as well ment nominates at least one community to participate in the project. Once as training in using sophisticated com- approved by FEMA, the nominated communities receive their Project Im- puterized analysis in the planning pro- pact designation and funding award. All North Carolina communities cess. HMPI is rapidly expanding the awarded a Project Impact designation also become participants in HMPI. scope of its services to include as many Communities that apply for participation in HMPI or Project Impact governments in the Floyd disaster area are evaluated on the basis of numerous criteria, including (1) a demon- as feasible. These communities soon strated commitment to hazard mitigation, (2) hazard vulnerability, will be receiving training and materials (3) capability to adopt and implement mitigation strategies, and (4) local to begin their own mitigation planning political support. activities. To learn more about applying for participation in HMPI and Project Impact, or to receive copies of the planning guide, contact Darrin Punchard, HMPI/Project Impact Coordinator, North Carolina Division The Hazard Mitigation of Emergency Management, 116 West Jones Street, Raleigh, NC 27603- Planning Process 1335, phone (919) 715-9195; or visit the Division of Emergency Although the Division of Emergency Management’s Web site, www.ncem.org. Management allows for local creativity

spring 2000, popular government 7 As Hurricane Floyd makes landfall in North Carolina, evacuations of coastal areas create near-standstill traffic as far inland as Interstate 40 near the Raleigh-Durham International Airport.

Raleigh News & Observer Raleigh Harry Lynch, Lynch, Harry mitigation plan can be formulated are for planning purposes. Not to be dis- and undevelopable lands. Data sources as follows: counted as a source of information is include local and state population fig- historical evidence from past hazard ures, existing land-use maps, and tax Identifying and analyzing the natural • events and the cumulative knowledge assessment maps. Future vulnerability hazards that affect the area of residents and long-time community of people can be determined using Analyzing the area’s vulnerability to • members. Even anecdotal evidence population projections or estimated each type of natural hazard about “the big one” that occurred a growth rates. Local land-use plans, Assessing the capability of the area • generation ago can provide valuable zoning ordinances, and other regula- to mitigate those hazards effectively information for planners and policy tory and policy instruments that deter- Analyzing the acceptability of the ex- • makers. mine where, when, and how land may isting level of risk be developed can be used for assessing Vulnerability Analysis the vulnerability of the future built en- Hazard Identification and Analysis The second background study is to de- vironment. In the first basic study, the community termine the community’s level of vul- To be truly useful, hazard back- identifies and maps its problems—the nerability—both now and in the fu- ground analyses must be mapped. All types of hazards that exist, the fre- ture—to the natural hazards identified the identified hazard areas should be quency and the probability of their oc- in the previous step. This analysis high- displayed, and critical facilities, em- currence, their strength and impact, lights who and what is at risk. To target ployment centers, structures that have and the location within the community mitigation efforts appropriately, the been repeatedly damaged, and infra- where the impact may be felt. This step community must know where and to structure (roads, bridges, water and allows the community to focus limited what extent it is susceptible to the im- sewer lines, and so forth) should be resources on hazards with the highest pact of natural hazards. Vulnerability marked. Planners can then overlay ex- likelihood of occurrence and the great- assessment includes recording popula- isting land-use maps and tax maps to est potential impact. Resources for col- tion numbers (including such details as determine what is at risk in relation to lecting hazard data include local maps; seasonal fluctuations and special popu- the hazards. Future vulnerability can be state, regional, and local agencies; and lations); the number, type, location, displayed graphically by overlaying the federal Flood Insurance Rate Maps and value of residential, commercial, local zoning map and vacant-lands map (FIRMs). Unfortunately, FIRMs and and industrial structures; the location to show potential development in rela- other types of hazard maps for many of critical facilities such as hospitals, tion to areas of risk. Many communi- localities are in need of updating, but power plants, and police and fire sta- ties find that the application of Geo- the lack of precision in delineating haz- tions; the types of regional activities graphic Information Systems (GIS)—a ardous areas should not dissuade com- that may affect the community’s vulner- computerized analytical tool—is an ef- munities from using all available data ability; and the location of developable fective means to carry out this step, but

8 popular government, spring 2000 GIS is merely an instrument to help usefulness to the local community in between the legal authority to act and determine vulnerability. Communities terms of hazard mitigation. the political willingness or the financial that do not have the resources to engage The capability assessment is more ability to carry through. The political in the sophisticated analyses that GIS than an inventory of existing mitigation dimension may be particularly difficult affords can carry out hazard assessment measures and organizations with re- to assess in advance. However, analyz- in a more rudimentary fashion with tra- sponsibility for hazard mitigation. It ing how to insert mitigation routinely ditional maps and grease pencils. The should include evaluation of the de into everyday decision making can go a critical issue is to gather the data and facto mitigation measures—those that long way toward depoliticizing the is- present them in a format useful for may be designed for another purpose sue. If mitigation comes to the forefront policy formulation. but nevertheless have an effect (either of the community’s concerns, local positive or negative) on hazard vulner- elected officials may be much more Capability Assessment ability. For example, preserving ocean- likely to promote its implementation. The capability assessment involves as- front dunes for aesthetic purposes also Public education and awareness cam- certaining the legal authority vested in buffers shoreline property from wind paigns about the long-term economic local governments to pursue measures and waves. The assessment also must benefits and social utility of mitigation to mitigate the impact of natural haz- identify and analyze existing local poli- also can help foster its general accep- ards. The assessment also involves cies or practices that may weaken miti- tance by citizens and, in turn, by elected evaluating the community’s political gation efforts or even exacerbate the officials. willpower, institutional framework, risk facing the local community from Funding for mitigation may be a low technical know-how, and ability to pay natural hazards. These might include priority in some local budgets. Fortu- for mitigation. The capability of all lev- formally adopted policies (for example, nately, diverse sources of assistance are els of government (local, state, regional, relaxation of building code require- available to communities to increase and federal), as well as the potential ments following a flood or a hurricane their financial capability, including contributions of nongovernmental or- to speed recovery) or political directives both government and private pro- ganizations (churches, charities, com- concerning allocation of public re- grams. National programs provide the munity relief funds, the Red Cross, hos- sources (for example, a decision to fi- bulk of disaster-related financing. Miti- pitals, for-profit businesses, nonprofit nance the extension of utilities and pub- gation grants and loans are available organizations, and the like) should be lic services to hazardous areas). to eligible communities from FEMA, included, with a description of their There often is significant divergence the U.S. Department of Housing and

Officials in the state’s Division of Emergency Management used a geographic information system (GIS) to generate this map of 100- and 500-year flood zones in a section of Wayne County. Officials analyzed land parcels within the flood- hazard areas to identify opportunities for mitigating future damage from floods.

Flood Zones and Properties, Goldsboro Area

Wayne County parcels Flood Zones 100-year flood zones 500-year flood zones

2 024 Miles Map prepared by North Carolina Center for Geographic Information and Analysis Carolina Center for Geographic Information and Map prepared by North

spring 2000, popular government 9 Raleigh News & Observer Raleigh

The flooding may have serious environmental and health consequences. Above and right: pigs struggling to stay alive as rising floodwaters threaten them; a flooded hog lagoon. Below: one of more than five junkyards located within the floodplain of the Neuse River that were overrun by floodwaters.

Raleigh News & Observer Raleigh Harry Lynch, Lynch, Harry

Urban Development, the federal Small that is typically needed to supplement Business Administration, and other fed- an outside source of funds. eral agencies following a declared disaster. But local communities need not rely Acceptability Assessment solely on government financing to aug- On the basis of the background studies ment the local hazard-mitigation bud- on hazards, vulnerability, and capabil- get. For instance, local businesses and ity to respond, the locality should deter- organizations will frequently support mine whether the existing level of risk is projects that benefit their customers or acceptable. If not, the locality should employees or constitute good public re- create a plan to reduce its vulnerability. lations. Other groups or individuals may be willing to donate in-kind goods Formulating Goals and Objectives or services, eliminating the need for Once the background analyses have cash. Often the in-kind and volunteer been performed, the community can contributions of community members use the information to create a vision

10 popular government, spring 2000 has formulated goal statements in other documents that can help develop mitigation priorities and support mitigation objectives. The comprehensive plan (which governs the locality’s overall land-use pattern), the capital improve- ments plan (which identifies where and when local expenditures for infrastructure will take place), the floodplain management plan (which delineates flood-hazard areas and regulates activities located there), and other locally enacted policies and plans may be sources of already existing goal statements that can be incorporated into the hazard mitigation plan. News & Observer Raleigh Many communities, however, did not address hazards when they estab-

lished their goals and objectives. As a Sharpe, Scott result, they may have overlooked haz- The flooding of cemeteries, like this one near Kinston, had bizarre results: coffins ard risks, and some of their goals and unearthed and washed away. objectives may even hinder mitigation. Thus they may have to create new goals and structures, and maintaining a stable should be directed include environmen- or reconcile old ones with their interest and growing business community. tal protection, transportation, housing, in mitigation. and management of growth and de- To the greatest degree possible, miti- Formulating Policy, Programs, velopment and other major local func- gation goals and objectives should be and Strategies tions. For example, a policy might de- integrated with other local interests. The policies, programs, and strategies termine which critical environmental Examples of other, broad-based goals contained in the local mitigation plan areas merit special protection from de- that can support mitigation goals (and direct what action will be taken to velopment, thereby enhancing their vice versa) include providing open make the community safer. Policies are natural mitigation features. Another space, conserving the environment, pro- principles of hazard mitigation, ex- policy might govern transportation ca- tecting natural areas, improving water pressed as action statements. Policy pacity, ensuring that adequate evacua- quality, preserving historic buildings areas to which mitigation concepts tion time is allowed in case of a major hazard event. Programs, made up of strategies designed to implement the plan, are the means by which policy is carried out. A comprehensive mitigation plan will contain several programs, each of which complements and supports the others. For example, as part of their mitigation plans, some communities have enacted programs to control the rate of growth in environmentally sensitive areas and areas with limited evacuation capacity. Strategies used to carry out such programs include delineating preferred-growth areas and de- veloping small-area plans for the tar- geted locations. Increasingly, local governments are devising acquisition programs to obtain rights to critical pieces

Residents of Edgecombe and south Pitt

Tarboro Daily Southerner Tarboro counties, surrounded by floodwaters, were airlifted by U.S. Coast Guard SH-43 helicopters to a shelter at

Ralf Walters, Walters, Ralf Tarboro High School.

spring 2000, popular government 11 Princeville, the first town chartered by freed blacks, on February 20, 1885, was severely damaged by floodwaters. At right, water overtakes the Princeville Town Hall. On February 29, President Clinton created a special council on the town, directing a dozen Cabinet members and senior officials to help rebuild it. It “holds a special and highly significant place in our nation’s history,” he said. of property. By acquiring property either in “fee simple” (with full rights of ownership) or through easements, local governments can protect sensitive areas Daily Southerner Tarboro from development and prevent a dra- matic rise in the locality’s vulnerability. B. Trevathan, B. Trevathan, Adopting and Implementing a Plan To become enforceable policy, a local a disaster the significant hazard-mitigation plan must be adopt- challenge for communities ed by the governing body of the local is how to balance the driv- government. A series of recommenda- ing need for rapid recovery tions made by planning staff will not with the importance of have the same impact as an official implementing long-term document that lays out the govern- hazard mitigation. Meet- ment’s policies regarding mitigation. ing basic needs and reset- No plan is self-executing, so the real tling displaced populations challenge of hazard-mitigation plan- often overshadow consid- ning involves converting the plan into eration of the community’s action. It is important to have some im- sustain ability. Once a plementation mechanisms in place be- community has initiated fore a disaster occurs, such as a list of full-scale reconstruction, sites to be acquired or a reserve fund to modifying projects to meet move damaged infrastructure. The plan sustainability objectives is should specify the people or the offices difficult. This phenom- within the community that are respon- enon highlights the need sible for carrying out the actions, and for pre-disaster mitigation set forth a schedule to ensure timely planning that incorporates Raleigh News & Observer Raleigh implementation. The intent of the im- principles of sustainable plementation section is to alter the tra- development within the ditionally reactive nature of a response context of reconstruction.

to disaster. The proactive nature of By looking closely at the Mel Nathanson, mitigation planning is what leads to hazards they face and the This Oak Island home was partially lifted off its successful reduction of hazard vulner- impacts those hazards can foundation and grotesquely twisted. ability. have, citizens can direct development in ways that do not pose the Sustainable development through Creation of Sustainable same risks. They can take the process mitigation is not an impediment to Communities through further, incorporating into all redevel- growth. By building a community that opment efforts the principles of smart is resilient to natural hazards, citizens Hazard Mitigation growth: a sense of stewardship, an ethic strengthen the local economy. A locality Communities that have been through a of environmental protection and natu- that reduces its vulnerability will expe- disaster such as Hurricane Floyd have ral resource preservation, and a com- rience less restoration time, shortened lost much. But they also can gain much. mitment to equity and parity. Both ur- business downtime, and less social dis- Redevelopment can take place in a ban and rural areas can be rebuilt to ruption following a disaster, freeing re- manner that allows localities to rebuild meet the needs of the current generation sources that would otherwise be de- as stronger, more resilient, even better while protecting the ability of future voted to response and recovery, and communities than before. Following generations to meet their own needs. more quickly improving citizens’ lives.

12 popular government, spring 2000