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North Carolina Disaster Recovery: Short and Long Term Challenges
- 1. North Carolina Disaster Recovery Short- and Long-Term Challenges December 12, 2018
- 2. Elizabeth Kellar Director of Public Policy ICMA Linda Langston Director of Strategic Relations NACo
- 3. WHAT I WISH I’D KNOWN BEFORE THE DISASTERS ABOUT THE RECOVERY CHALLENGES! DOUG ANDERSON RETIRED ST. LUCIE CO. FLORIDA ADMINISTRATOR
- 4. Short-term and Long-term Recovery Short-Term Recovery Provide Shelter Temporary Local Business Resumption Provide Food, Ice and Drinking Water Restore Power Debris Removal Long-Term Recovery Rebuild Infrastructure Critical Stress Management Documentation and Reimbursement
- 5. Insurance vs. FEMA Waive local zoning Unlicensed Contractors Move on! Short-term Recovery – Shelters & Housing
- 6. Short-term Recovery – Business Resumption • Be Innovative • Be Flexible • Unemployment Insurance • SBA • Disaster Recovery Center
- 7. Short-term Recovery – Distribution of Supplies • Stock Up – Water, MRE’s, Tarps and Cots • Get Supermarkets and Gas Stations Back Up and Running
- 8. Short-term Recovery – Restore Power and Other Utilities • Establish Staging Areas With Resources • Prepare for the Unexpected – Concrete Poles Falling over Breaking Water and Sewer Lines
- 9. Short-term Recovery – Debris Removal • Get pre-approval from FEMA for debris cubic yard reimbursement • Right-of-Entry Agreements – Holds local government and FEMA harmless for going on private property to remove debris • Designate disposal sites. You don’t want to fill up your landfill! • Have a monitor (employed by local government) sign off on each delivery slip while load is being inspected. • Determine end uses of debris – Landfill cover, fill, recyclables, etc.
- 10. Long-term Recovery – Rebuild Infrastructure • Power – Harden Poles, Lines, Etc. • Rebuild Government Buildings – EOC, Special Needs Shelter, Roads and River Embankments • Rebuild Government Utilities • Funding – Initially Draw on Emergency Reserves, Lines of Credit with Local Banks. Long Term – Insurance, FEMA, Federal Highway Program, Mitigation Grants, Vegetation Planting Grants, Local Partners and State. Don’t Be Afraid to Challenge Your Insurance Companies!
- 11. Long-Term Recovery – Critical Stress Monitor your stress and that of your employees! They will do anything for you and that can become dangerous!
- 12. Long-Term Recovery Summary • Long and Lonely Process! Will go on for Years! • Document, Document and Document! • If you have the resources, establish an In-house reimbursement team – ie. Grants Department or if not, hire outside help. This is money well Invested! You most likely will have to go through the reimbursement process several times with different FEMA Reimbursement Teams! Good Luck – You will make it and your community will be better for it!!!!
- 13. Norma Houston NACO ICMA Disaster Recovery Webinar December 12, 2018 Weathering the Storm: Disaster Recovery Pitfalls
- 15. Common FEMA PA Reimbursement Problems 1. Contracting – not complying with procurement requirements 2. Personnel – overtime compensation without having a pre-existing non-discretionary policy 3. Private property exclusion – reimbursement generally not provided for work on private property 4. Lack of legal responsibility – applicant’s must have the legal responsibility to perform the work 5. Inadequate/no documentation 6. No local state of emergency declaration
- 16. Most Common Reimbursement Pitfall Noncompliance with federal procurement requirements most common reason for FEMA PA reimbursement denial DHS OIG found over $500 million in questionable PA reimbursement due to procurement violations (2008-2016)* *Source: https://www.oig.dhs.gov/sites/default/files/assets/2017-11/OIG-18-06-Oct17.pdf
- 17. Procurement Requirements Uniform Guidance & FEMA Rules State Law Local Policies Follow the “Most Restrictive Rule” Requirements apply to ALL categories of PA permanent work (CDBG-DR rules similar)
- 18. Be Aware of Funding Sources Procurement Requirements Source of Funds Project State DRA / Local State Law & Local Policies Federal Most Restrictive Rule
- 19. FEMA Top 10 Procurement Mistakes 1. Bidding requirements (noncompetitive contracting) 2. Sole source beyond exigent circumstances 3. Piggybacking 4. Time and materials contract 5. Cost-plus contract 6. Contract provisions 7. Geographic preference 8. MWBE solicitation 9. No cost/price analysis 10.Inadequate/lack of documentation Source: https://www.fema.gov/media-library-data/1506978167717- 61cdf0784cbba7f976f8a66700f04f3e/Top_10_FEMA_Grant_Procurement_Mistakes_20170928.pdf
- 20. SOG Hurricane Florence Resources www.sog.unc.edu/ncem
- 21. Procurement Resources Include: 1. FEMA procurement checklist 2. “Most Restrictive Rule Summary” 3. FEMA PDAT webinar slides 4. FEMA contract provisions template 5. State IPS bid posting link (use for broad solicitation) 6. State HUB Office bid posting link (use for MWBE solicitation) FEMA PDAT: https://www.fema.gov/procure ment-disaster-assistance-team
- 23. Unmet Needs • FEMA reimbursement won’t cover all your costs and community’s needs • Keep track your unmet needs • Report your unmet needs to NCDEM: Mary Glasscock Mary.Glasscock@ncdps.gov
- 24. Long-Term Recovery Planning • Matthew resiliency plans can be a starting point, but probably need updating • Involve community stakeholders, especially for business and housing recovery • Focus on long-term – your recovery will take years, but don’t give up hope • Incorporate mitigation into your plan ASK FOR HELP IF YOU NEED IT!
- 25. Thank You and Good Luck! Norma Houston UNC School of Government nhouston@sog.unc.edu 919.843.8930
- 26. Recovery Essentials Ron Carlee, D.P.A. Old Dominion University Director, Center for Regional Excellence Visiting Assistant Professor Principal, Leaders2C, LLC December 12, 2018
- 27. 27 Crisis Leadership & Floods Hurricane Harvey 2017 Clay Pearson, City Manager, City of Pearland, TX Richard (Rick) Davis, City Manager, City of Baytown, TX Sereniah M. Breland, Former Town Administrator, Town of Alvin, TX Morab Kabiri, City Manager, City of Friendswood, TX 2013 Colorado Floods Victoria Simonsen, Town Administrator, Town of Lyons, CO Jane Brautigam, City Manager, City of Boulder, CO Harold Dominguez, City Manager, City of Longmont, CO 2013 Illinois Floods Patrick Urich, City Manager, City of Peoria, IL
- 28. 28
- 29. 29 Friendswood, TX Population 39,839 Area 20.7 sq. miles Median Income $95,241 Poverty Rate 5.8% Budget $56 million Alvin, TX Population 26,474 Area 24.3 sq. miles Median Income $45,949 Poverty Rate 16.9% Budget $46 million Baytown, TX Population 76,804 Area 35.5 sq. miles Median Income $49,930 Poverty Rate 16.4% Budget $186 million Pearland, TX Population 119,940 Area 47.0 sq. miles Median Income $96,954 Poverty Rate 4.5% Budget $287 million
- 30. 30 Lyons, CO Population 2,033 Area 1.2 sq. miles Median Income $90,806 Poverty Rate 5.4% Budget $1.1 million Longmont, CO Population 94,341 Area 26.19 sq. miles Median Income $62,847 Poverty Rate 13.2% Budget $229 million City of Boulder, CO Population 107,125 Area 24.7 sq. miles Median Income $60,569 Poverty Rate 22.0% Budget $255 million
- 31. 31 Peoria, IL Population 112,883 Area 48 sq. miles Median Income $46,547 Poverty Rate 21.7% City Budget $200 million
- 32. 32 Leadership Leading Up Leading Down Managing Oneself Thinking Ahead Managing Relationships Managers Supporting Managers Media Management Traditional Media Communicating Directly Social Media Branding Employee Support Health & Safety Pay Policies Employees’ Victim Assistance Lessons from City Managers Recovery Planning for Recovery Working with FEMA Financing Disasters Debris Removal Volunteers & Donations Mental Health Support Preparation and Response Planning Improvising Assessing Risks
- 33. 33 “Everyone in the organization is going to look to you to see how rattled, nervous, unsettled you are during an event. No matter how rattled and unsettled you are, you need to be cognizant and manage it. If you're going crazy and you’re showing a lot of emotions that is going to start bleeding into everyone else. I tried to be as calm and as pragmatic as I could to create that kind of atmosphere in the EOC and with our staff so we could do our best work.” Harold Dominguez, Longmont “We need to keep up morale and a sense of humor...” Sereniah Breland, Alvin “There comes a time and place where you have to take a risk relative to your charge. You don't have the answers—but you have to make the decision, for example, to spend money even though you don't know if you have it or will be reimbursed. You must be focused on the mission and worry about the other stuff later.” Dan Paranick, City of Ventura Leadership
- 34. 34 1. Find an organizational structure that works for you 2. Conduct an After-Action Review of the Preparation & Response 3. Develop recovery plan Establish measurable recovery goals Have Council adopt goals Make regular progress reports to Council and the public 4. “Brand” the recovery 5. Communicate, Communicate, Communicate 6. Take care of yourself, your employees, & the community Recovery Organization
- 37. 37 The community’s vision for its future Focus on resilience, not just rebuilding, but rebuilding smarter and better for a stronger and more resilient community. Recovery Plan
- 38. 38 Branding
- 39. 39 Communication
- 41. 41 “This is easy to say and chances are if, God forbid, you are faced with the same type of challenge, you're not going to take this advice. You must find a way to take care of yourself. November 17 was the day of the tornado. I truly did not have my first day off at home with my family until Christmas Day. I spent plenty a night catching a little sleep in my chair or laying on the floor under the desk because it was darker. You must find a way to take care of yourself because if you're not hitting on all eight cylinders, you're not performing at optimal levels for your community in its greatest time of need.” Tim Gleason, Former City Manager of Washington, Illinois Take Care of Each Other
- 42. 42
- 43. 43 “These were the most challenging and most rewarding days of my life. I’m still working long hours and have only had one week of vacation in five years. Only five town employees are left of the thirteen we had before the floods. People got exhausted, including the entire public works department. I thought about leaving several times. This is so hard. We’ve had nine different critical paths happening at once. Why am I staying? It’s hard to understand if you don't have the roots in the community. It's overwhelming but I think we've done a good job for a small community. I am proud of what we’ve done.” Victoria Simonsen, Lyons
- 44. Ron Carlee, D.P.A. rcarlee@odu.edu ron.carlee@leaders2c.com 703-819-7311 (mobile/text) Twitter @roncarlee
- 45. Guidance Resources for Recovery 5 Main Categories: • Leadership and Key Actions • Planning • Coordination and Resources • Recovery Management • Financial Management
- 46. Leadership and Key Sites • Leading Edge Research: Disaster Recovery Essentials – ICMA • Resilient Counties Initiatives - NACo • Rebuild North Carolina • North Carolina Emergency Management • Recovery Takes Effective Leadership – Perspectives on Recovery, ICMA • Leadership in Times of Crisis - IEDC • Community Recovery Management Toolkit – FEMA • Improving Disaster Recovery - in Risk Journal, McKinsey Associates. • Colorado Community Recovery Symposium Video – Jane Cage, Joplin, MO • Louisiana Recovery and Resiliency Symposium Video – Lafayette, LA • How to Communicate Effectively Before and After Crisis - IEDC
- 47. Recovery Planning • Planning for Post-Disaster Recovery: Next Generation – APA • Long Term community Recovery Planning Process: A Self Help Guide - FEMA • Post-Disaster Recovery Planning resources – FEMA • Resources for Funding and Technical Assistance in Recovery Planning and Management – FEMA • Community Resilience Planning Guide for Buildings and Infrastructure – NIST • Smart Growth Changes for Climate Adaption and Resilience - EPA • Hazard Mitigation Planning Resources – FEMA
- 49. Coordination and Resources • Effective Coordination of Recovery Resources - FEMA • Funding resources for recovery by agency - FEMA • Planning and Capacity Building Focused Funding and Technical Assistance – FEMA • Infrastructure Financing – A Guide for Local Government Managers – ICMA • Building your Roadmap to a Disaster Resilient Future – Natural Hazard Mitigation Association • Restoring Regional Economies in the Wake of a Disaster – NADO • Grants.gov • Benefits.gov • DisasterAssistance.gov • Catalog of Federal Domestic Assistance • U.S. Climate Resilience Toolkit • U.S. Government Open Data • Community Recovery Management Toolkit
- 50. Recovery Resource Timeline Example Funding Timeline From Bolivar Blue Print, Galveston Co, TX
- 51. Recovery Management • 6 Perspectives on How Communities Can Recover After a Disaster – ICMA • Local Disaster Recovery Manager Basic Description - FEMA • Planning for Recovery Management – American Planning Association • Resilient Counties Initiative - NACo • Colorado Local Recovery Guide – Short, Mid and Long Term Recovery Processes • Disaster Recovery Ordinance – American Planning Association • Local Disaster Recovery Staffing Guide – Logistics Management Institute • Project Management Methodology for Post-Disaster Recovery – Project Management Institute • Capacity Building Support Catalog – Training list compiled by FEMA • Measuring Success in Recovery – American Planning Association • The Recovery Resources Book: Grand Forks Flood Disaster Recovery Lessons Learned – Grand Forks, ND
- 52. Community Recovery Timeline – Keeping Things in Perspective
- 53. Financial Management Predisaster Immediate Beginning of Recovery
- 54. Financial Management Guidance • Top Ten Procurement Mistakes Leading to Audits – FEMA • Procurement Disaster Assistance Team and Toolkit - FEMA • Disaster Recovery Cost Documentation - Government Finance Officers Association • Briefing Paper on Financial Recovery – American Planning Association • FEMA Grant and Financial Requirements: – Public Assistance Policy and Guidance – Hazard Mitigation Assistance – Individual Assistance • North Carolina CDBG-DR Reporting and Compliance – ReBUILD NC • Financial Planning for Natural Disasters – A Workbook for Local Governments and Regions - National Association of Development Organizations • Grants.Gov – Federal Government’s primary source for grants and grants management information. Including Grants Learning Center, Grants Uniform Circular requirements, Grants.gov training and events, Grants.gov community blog • Grants Management Body of Knowledge – National Grants Management Association
Editor's Notes
- Good Morning, It is good to be with North Carolina managers again, even though it is virtual. I miss seeing you at the NCCCMA meetings, but hopefully I will see some of you at the ICMA Southeast Regional Conference in Greenville, South Carolina in March.
- Last summer, I interviewed 14 city managers about their experiences in crisis leadership, eight of whom had been through flood events and are pictured here. They all experienced disasters unlike any that they had anticipated. Four of the managers went through Hurricane Harvey in Texas in 2017. Three of the managers experienced 2013 floods in Colorado. And, one routinely lives with flooding in Illinois.
- On this map you can get a geographical orientation and on the subsequent maps you can see some basic characteristics about each community. Small to mid-size communities were the intended study population.
- For Hurricane Harvey, I examined four cities in the Houston area: three cities south of Houston – Pearland, Friendswood, which was heavily impacted, and Alvin; one city to the west, the more industrial city of Baytown. The populations are between 119,000 and 26,000.
- The three Colorado cities sit on the eastern side of the Rockies and are essentially downstream of one another: Lyons, with a population of only 2,000 was devastated. Longmont, further downstream fared better, but was also hit hard. Boulder regularly gets flood waters from multiple directions.
- Peoria, located southwest and downstream from Chicago also floods regularly.
- The lessons from the 14 city managers interviewed reinforce the messages that you heard from Doug Anderson and Norma Houston. Topics covered in the full report are shown in this slide. The report, which is in production, is expected to be released early in 2019. There are distinct lessons related to preparation and response and others for recovery. Leadership, Media Management (or Communications) and Employee Support cross all phases of a disaster.
- Leadership is the most important of all of these. Disaster does indeed test one’s leadership and personal resilience. [text from slide]
- Immediately after Hurricane Florence, as you were all very much on my mind, I compiled an excerpt from the longer report that ICMA has just released I created it hoping to provide information that may be useful to you. This short report is named Disaster Recovery Essentials and is available on the ICMA website and is hyperlinked in the presentation. Today I will very briefly cover 6 lessons.
- It is important to find an organizational structure to sustain you through the long process of recovery. Jane Brautgam said that initially she tried to run recovery through the same ICS system used in the response phase and it just didn’t work for her. She “created a parallel structure of three recovery teams:” (1) infrastructure and city operations; (2) finance and FEMA; and (3) community services. Many cities find that they have long-term needs in parts of the city while the rest of the city is able to move on and expects the normal level of services and attention. Just because there is a disaster does not mean that the routine business of running a city is put on hold. These dual demands put a particular strain on the city manager or county administrator who must strike a balance on his or her own allocation of time between the recovery, the routine, and strategies for the future.
- This may seem strange, but if you have not conducted an After-Action Report on the preparation and response phases, you should consider doing so before memories fade and personnel change. The after-action reports will help inform the recovery plan as you work to build a stronger and more resilient city. These are two excellent after action reports that are hyperlinked.
- Your recovery plan is the road map for city’s post disaster future. On this slide I have hyperlinked the plan for Lyons, Colorado, which only had a population of 2,000 and a city workforce of 13 when it was totally flooded. It is critical that even before completing a plan, that the city have specific goals: immediate, short/mid-range and long-term. It is recommended that the goals be shared with the public, adopted by the Council, and that regular progress reports are made.
- To help rally people to the cause a number of cities actually brand the disaster. The use of the term “strong” appears to have emerged from the Boston Marathon attack in 2013: thus, BoCo – Boulder Strong, while in Tennessee, where they had devastating wildfires, the people are Mountain Tough. Longmont was particularly aggressive in branding elements of their flood recovery. The iconic flag photo is from Washington, IL, which experienced a devasting tornado in 2013 You can also see how Orlando sought to visually reinforce the city’s values of tolerance after the Pulse nightclub shooting.
- Obviously, the internet is a critical tool for communicating about the recovery. A number of cities created a separate website to focus exclusively on the recovery, leaving the city’s regular website to deal with regular business and to help restore normalcy. Like North Carolina, the cities in this study have overlapping responsibilities with counties. Most made an effort to consolidate city and county information as in the Mountain Tough and BoCo Strong websites. While Lyons, for example, has information in its site, it links to and does not duplicate BoCo Strong. These webpages are also hyperlinked for you.
- Video is a good way to communicate and to provide documentation for the future. Hyperlinked on this page is a short update from Boulder and a very long video from Longmont that is worth watching, especially to hear the story from a 911 emergency telecommunicator who saved the life of a young girl drowning in her car.
- Last, but not least is taking care of each other – yourself, your employees, and your community [slide quote] Getting rest and pacing oneself sets a good example and helps prepare you unanticipated hard days. In Gatlinburg and Sevier County after the devastating fires, the County mayor was called a murderer at a county board meeting and other officials were called liars and accused of a cover-up related to evacuation efforts.
- To Norma’s messages about FEMA, there is the case of Victoria Simonsen. Lyons had been virtually wiped out by 2013 floods. With her staff of 13, Simonsen said she and her team worked diligently to follow federal procedures the best they could, but the town didn’t even get procurement training until a year after the floods. On October 4, 2015, Simonsen was at home when she got a knock on the door. Two FBI agents were there and wanted to talk with her about a procurement issue. She offered them coffee and they proceeded to interrogate her for two hours, denying that she was actually under investigation. Meanwhile other agents were at her offices copying computers. The next day she and the city clerk were put on leave. How did she feel? “I wasn't as shook up as others. Right next to my desk is my ICMA Code of Ethics. I follow it and believe fully in the integrity that my position holds and knew I hadn't done anything wrong.” Two weeks later the investigation was dropped and the town administrator and clerk were reinstated.
- Victoria is still on the job… [slide quote] All of you can certainly be proud of the leadership you are providing to help your communities not only bounce back, but to be better and stronger.
- Here is my contact information. Please let me know if I can be of any assistance to you. Contact my anytime.