Creating a Safe Harbor After Hurricane Katrina: A Case Study of the Bayou La Batre Alternative Housing Pilot Program August 7, 2009 Prepared by: Prepared for: Abt Associates Inc. Department of Housing and Urban Development Amy Jones & Associates Office of Policy Development & Research Federal Emergency Management Agency Disaster Assistance Directorate Alternative Housing Pilot Program Contents Acknowledgements ......................................................................................................................... 1 Executive Summary..........................................................................................................................i Introduction ...................................................................................................................................................... i Grantee Organization ..................................................................................................................................... ii Bayou La Batre Program Design .................................................................................................................. ii Unit Design, Production, and Installation.................................................................................................. iii Homeownership Program.............................................................................................................................. v Observations and Lessons Learned.............................................................................................................. v Chapter 1: Introduction to the Bayou La Batre AHPP Project ...................................................... 1 Overview........................................................................................................................................................... 1 Methodology .................................................................................................................................................... 1 Bayou La Batre Before and After Hurricane Katrina................................................................................ 2 The City’s Vision for AHPP.......................................................................................................................... 4 The Bayou La Batre AHPP Program........................................................................................................... 5 Resident Recruitment and Selection............................................................................................................. 7 Bayou La Batre and AHPP Applicant Characteristics...............................................................................9 Chapter 2: Project Implementation ................................................................................................11 Project Organization.....................................................................................................................................11 Site Selection and Preparation.....................................................................................................................13 The AHPP Units ...........................................................................................................................................16 Neighborhood Design and Amenities .......................................................................................................21 Construction Management...........................................................................................................................24 Implementation Schedule.............................................................................................................................27 Chapter 3: Preliminary Results of the Building Sciences Evaluation ........................................... 29 Introduction ...................................................................................................................................................29 Evaluation Factors ........................................................................................................................................29 Unit Design ....................................................................................................................................................30 Procurement and Manufacture....................................................................................................................32 On-Site Work.................................................................................................................................................34 Initial Durability Assessment.......................................................................................................................36 Chapter 4: Property Management and Ongoing Operations ........................................................ 39 Management Tools........................................................................................................................................39 Housing Authority of the City of Bayou La Batre...................................................................................41 Leasing.............................................................................................................................................................43 Ongoing Operations and Maintenance......................................................................................................46 Maintenance ...................................................................................................................................................47 Homeownership ............................................................................................................................................48 Implementation Schedule.............................................................................................................................49 A Case Study of the Alabama Alternative Housing Pilot Program Chapter 5: Community Perspectives ............................................................................................. 51 Community Outreach Efforts .....................................................................................................................51 Perspectives from the Bayou La Batre Community.................................................................................52 Perspectives from Neighbors.......................................................................................................................53 Resident Perspectives....................................................................................................................................55 Chapter 6: Observations and Lessons Learned ............................................................................. 59 General Observations ...................................................................................................................................59 How viable and livable are the Alabama AHPP units and how did they affect quality of life for those who lived in them?..............................................................................................................................60 How did the approach to the project and organizational capacity affect implementation and participant outcomes? ...................................................................................................................................62 How were units accepted by community stakeholders and to what extent did community response affect program implementation? .................................................................................................................65 Appendix 1: Prohibited Criminal Activity Policy........................................................................... 67 Appendix 2: Copy of Lease and Six Addendums........................................................................... 71 Appendix 3: Declaration of Covenants Conditions and Restrictions for Safe Harbor Estates & Safe Harbor Landing Subdivisions............................................................................................ 91 Appendix 4: Guidelines for Determining Appropriate Household Size........................................ 95 Appendix 5: Unit Floor Plans ........................................................................................................ 97 Contents List of Exhibits Exhibit 1-1: Map of State/County Showing Position of Bayou La Batre.......................................................... 2 Exhibit 1-2: Aerial Views of Bayou La Batre/Fishing Boats in Bayou La Batre. ............................................. 3 Exhibit 1-3: Katrina’s Aftermath in Bayou La Batre............................................................................................. 3 Exhibit 1-4: A New CDBG Modular Home in Bayou La Batre ......................................................................... 4 Exhibit 1-5: Zirlott Park, FEMA Mobile Home Park in Bayou La Batre.......................................................... 4 Exhibit 1-6: Site Plans of Safe Harbor Landing and Safe Harbor Estates......................................................... 6 Exhibit 1-7: Bayou La Batre Architecture ............................................................................................................... 7 Exhibit 1-8: Distribution of Households According To Priority Categories, as Reported on Applications Submitted for Analysis ................................................................................................................