Long-Term
Community Recovery
Planning Process
A Self-Help Guide
December 2005
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 i
ACKNOWLEDGEMENTS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .iii
FOREWORD . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .v
I. INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
PURPOSE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
WHAT IS LONG-TERM COMMUNITY RECOVERY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
BENEFITS OF LONG-TERM COMMUNITY RECOVERY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
BASIC PRINCIPLES OF LONG-TERM COMMUNITY RECOVERY . . . . . . . . . . . . . . . . . . . . . . .
USERS OF THE SELF HELP GUIDE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
II. BUILDING A LONG-TERM COMMUNITY RECOVERY PROGRAM . . . . . . . . . . . . . . . . .9
STEP 1: ASSESSING THE NEED
Do we need long-term community recovery planning? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 2: SELECTING AN OVERALL LEADER and OUTLINING A LTCR PROGRAM
Where do we begin? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 3: SECURING OUTSIDE SUPPORT
Where can we get help? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 4: ESTABLISHING A PUBLIC INFORMATION CAMPAIGN
How do we keep the community informed and involved in the process? . . . . . . . . . . . . . . .
STEP 5: REACHING A CONSENSUS
How do we secure community buy-in to move forward? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 6: IDENTIFYING THE LTCR ISSUES
What are our opportunities? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 7: ARTICULATING A VISION AND SETTING GOALS
What will strengthen and revitalize our community? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 8: IDENTIFYING, EVALUATING AND PRIORITIZING THE LTCR PROJECTS
What makes a good project? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 9: DEVELOPING A RECOVERY PLAN
How do we put it all together? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 10: CHOOSING PROJECT CHAMPIONS
Who will provide leadership for each project? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 11: PREPARING A LTCR FUNDING STRATEGY
Where do we get the funding for these projects? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 12: IMPLEMENTING THE PLAN
How do we make it all happen? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
STEP 13: UPDATING THE PLAN
When are we finished? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
III. WHERE DO WE GO FROM HERE? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .83
APPENDIX . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .A - 1
LIST OF RESOURCES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
LTCR PLANNING PROCESS CHECKLIST . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Table of
Contents
LTCR
TABLE OF CONTENTS
3
4
5
6
7
13
15
19
25
31
37
41
47
59
67
71
77
79
A - 3
A - 9
ii DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Table of
Contents
LTCR
LIST OF FIGURES
FIGURE 1 - CONCEPTUAL LTCR PROCESS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4
FIGURE 2 - LTCR STEPS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17
FIGURE 3 - LTCR STEPS AND OUTSIDE SUPPORT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23
FIGURE 4 - NETWORK OF STAKEHOLDERS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .31
FIGURE 5 - DECISION MAKING FRAMEWORK . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
FIGURE 6 - EXAMPLE OF PROJECT GOAL STATEMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .43
FIGURE 7 - RECOVERY VALUE DIAGRAM . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .49
FIGURE 8 - COMMUNITY INTEREST DIAGRAM . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .51
FIGURE 9 - LTCR GENERALIZED TIME LINE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .61
FIGURE 10 - CONCEPTUAL FUNDING SOURCE DIAGRAM . . . . . . . . . . . . . . . . . . . . . . . . . . . . .72
TABLE OF CONTENTS
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 iii
Acknowledgements
Preparation of this document involved planners and architects who have participated in
local long-term community recovery initiatives over the past several years, U.S.
Department of Homeland Security’s Federal Emergency Management Agency (FEMA)
headquarters personnel, ESF 14 partners and the Florida Long Term Recovery Office
(LTRO).
The long-term community recovery (LTCR) process is evolving. This Self-Help Guide
should be viewed as a preliminary document or interim draft for field-testing and is aimed
at continuing to pilot some of the concepts and methods that have been successful in the
past. Subsequent versions of the guide should incorporate lessons learned from current
and future LTCR efforts with a focus on tightening the organization, the level of detail, and
the depth of information in each of the steps. This guide will need to be assessed with
respect to its usefulness as currently written and will be revised as necessary, based on
feedback from its users.
LTCR
ACKNOWLEDGEMENTS
iv DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
ACKNOWLEDGEMENTS
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 v
Foreword
Following certain disaster events, state, tribal, and/or local governments may wish to
undertake a long-term recovery program in which FEMA - using its long-term community
recovery assessment tool indicates that supplemental federal support is not required. The
FEMA Long-Term Community Recovery (LTCR) Self-Help Guide (guide) is intended to pro-
vide state, tribal and local governments with a framework for implementing their own
long-term community recovery planning process after a significant disaster event. It is
assumed that any state, tribal, or local government undertaking a LTCR Self-Help program
will have qualified staff to manage the planning process.
Every disaster is unique, but there are basic principles that can be applied to assist in
long-term recovery from the disaster.
This LTCR Self-Help Guide:
• Provides step-by-step guidance for implementing a LTCR planning program
based on the experience obtained and the lessons learned by teams of planners,
architects, and engineers over a period of several years and multiple experiences
in comprehensive long-term community recovery.
• Incorporates case studies for each of the steps in a LTCR program.
• Offers guidance and suggestions for involving the public in the recovery program
• Provides method for developing a LTCR plan that is a flexible and usable
blueprint for community recovery.
The Self-Help Guide is based on the experiences gained and lessons learned by communi-
ties in developing and implementing a long-term community recovery program. The
guide incorporates the knowledge gained by dozens of community planners as they
undertook the LTCR program and developed LTCR plans in disasters that varied in scope
from a tornado in a small town to the World Trade Center disaster.
There also may be a need for communities to modify the process set forth in this guide to
suit their particular needs. It is important that each community assess its own capability
to undertake LTCR planning. The guidance provided in this guide is based on a process
that has worked - but where outside technical assistance has been provided. If, after
reviewing the guide, local officials do not feel they have the capacity to lead and manage
this effort, consideration should be given to soliciting assistance from any of the resources
listed in STEP 3: SECURING OUTSIDE SUPPORT.
The primary function of the LTCR Self-Help Guide is to provide a planning template to
communities that have been struck by a disaster and/or the community has the resources
to undertake a LTCR program on its own. But this guide also may be useful for FEMA LTCR
technical assistance teams as they work with communities on long-term recovery and
may even be of assistance as a tool for teaching community preparedness in terms of put-
ting infrastructure in place for a LTCR program before a disaster occurs.
LTCR
FOREWORD
vi DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
FOREWORD
LTCR
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 1
Chapter I
INTRODUCTION TO
LONG-TERM
COMMUNITY
RECOVERY
LTCR
INTRODUCTION TO LONG-TERM COMMUNITY RECOVERY
2 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
INTRODUCTION TO LONG-TERM COMMUNITY RECOVERY
LTCR
INTRODUCTION TO LONG-TERM COMMUNITY RECOVERY
I. INTRODUCTION TO LONG-TERM COMMUNITY RECOVERY
Stockton, Mo., a community with a population just under 2,000, was intent on recovering from
a May 4, 2003 tornado that completely destroyed its downtown, but community leaders were
unsure where to begin the recovery. According to Mayor Ralph Steele, some residents were
ready to build "a tin shack just to get back in business," but others wanted a more thoughtful
and comprehensive approach to recovery.
Supported by a FEMA long-term com-
munity recovery planning team, the
city initiated a three-month moratori-
um on building permits in the down-
town area. During that time, the city
undertook a LTCR planning program
with FEMA assistance and technical
advisors. The process involved local
officials, business owners, and resi-
dents and focused on making the com-
munity an even better place than it
was prior to the tornado. Downtown
business owners agreed to basic
design standards that focused on
brick facing for the buildings, consis-
tent setback standards, and an overall
redevelopment plan for the area.
Today, Stockton's downtown is alive
with activity from banks, a coffee and
gift shop, the county newspaper office,
various real estate and law offices, and
continued construction activity. Much
of the credit to the cooperative spirit
among the business owners, local gov-
ernment, and various state depart-
ments is the result of the LTCR plan-
ning process that stressed community
involvement and an outreach element
that solicited state and federal part-
ners in the recovery process.
Purpose
The purpose of this guide is to provide communities with a framework for long-term com-
munity recovery that has been used by FEMA and its technical advisors over the past sev-
eral years. This LTCR process has been successful in bringing communities together to
focus on their long-term recovery issues and needs and to develop projects and strategies
to address those needs. The recovery effort for these communities is still underway, but
the LTCR plan and the process employed to develop the plan has been a critical part of
their recovery effort.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 3
THINK BIG!
The LTCR Planning Process is an opportuni-
ty to "think big." Don't limit yourself to
merely putting things back the way they
were prior to the disaster. Keep in mind
the quote attributed to Daniel Burnham,
the pioneer planner and architect who
supervised the construction of the
Columbia Exposition in 1893 and devel-
oped the Plan for Chicago in 1909.
“Make no little plans; they have no magic to
stir men's blood and probably will
themselves not be realized. Make big plans;
aim high in hope and work, remembering
that a noble, logical diagram once recorded
will not die.”
Chapter I
LTCR
Surveying the damage in Stockton, Mo.
4 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
The first step in long-term community recovery is the recognition by the community of
the need to organize and manage the recovery process as opposed to letting repairs and
rebuilding occur without a cohesive, planned approach. While FEMA is able to provide
assistance to the most critically impacted communities that do not have resources to
undertake a LTCR process, FEMA will not be able to provide that level of assistance to all
communities. This guide is designed for commu-
nities with the resources to undertake the LTCR
planning process themselves.
While this guide is based on processes that have
worked in other communities, each community
is unique and the damages sustained in a disas-
ter are going to be unique for each community.
Communities may need to modify the LTCR plan-
ning process set forth in this guide to suit their
particular needs.
What is Long-Term Community
Recovery?
Long-term community recovery - it is necessary
to focus on both the long-term aspect of the
phrase and the community recovery aspect.
Removing debris and restoring power are recov-
ery activities but are considered immediate or short-term recovery actions. These actions
are extremely important; however, they are not part of long-term community recovery.
"Long-term" refers to the need to re-establish a healthy, functioning community that will
sustain itself over time. Examples of long-term community recovery actions include:
• Providing permanent disaster-resistant housing units to replace those destroyed,
• Initiating a low-interest facade loan program for the portion of the downtown
area that sustained damage from the disaster (and thus encouraging other
improvements that revitalize downtown),
• Initiating a buy-out of flood-prone properties and designating them community
open space, and
• Widening a bridge or roadway that improves both residents' access to
employment areas and improves a hurricane evacuation route
The LTCR program should focus on development of a recovery plan that incorporates the
post-disaster community vision and identifies projects that are aimed at achieving that
vision. A community vision may have been identified prior to the disaster, but visions
INTRODUCTION TO LONG-TERM COMMUNITY RECOVERY
Chapter I
LTCR
Disaster
Response and
Short-Term Recovery
LTCR
Planning
Community
Recovery
Figure 1
Conceptual LTCR Process
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 5
often change after a disaster. Disasters may even unveil new opportunities that were not
considered earlier. Long-term community recovery provides an opportunity to put a com-
munity back together in an improved way.
LTCR is the process of establishing a community-based, post-disaster vision and identifying
projects and project funding strategies best suited to achieve that vision, and employing a
mechanism to implement those projects. Each community's LTCR program is shaped by the
community itself, the damage sustained, the issues identified, and the community's post-
disaster vision for the future.
Based on past efforts using consultants, LTCR is typically a 6 to 12 week intensive planning
process setting the blueprint for community recovery after a disaster event. The length of
time for your planning process will depend on the resources you have available and the
amount of damage sustained.Your process will probably take longer unless the LTCR team
can devote full time to this effort. In most cases, the LTCR plan should be kept to a tight
time frame with tangible results to avoid public disillusionment with recovery efforts and
to take advantage of the sense of community that usually follows a disaster. Keep in mind
that this is not a typical strategic or master plan. This is a plan that should focus on recov-
ery from the disaster. Many actions taken in the weeks immediately following a disaster
will have long-term community impact. The LTCR program must be developed quickly in
order to provide direction and focus to community rebuilding efforts. Timing is an impor-
tant factor in LTCR.
Benefits of Long-Term Community Recovery
A LTCR plan benefits the affected community but also provides benefits to state and fed-
eral agencies assisting in recovery. The LTCR program consists of both a process and a
product - both are important. Key benefits of the LTCR program include the following:
• Organization - the program provides a consistent approach to LTCR and
promotes cooperation and coordination among federal, state, and local officials.
Chapter I
LTCR
INTRODUCTION TO LONG-TERM COMMUNITY RECOVERY
DISASTER RECOVERY
The ideal disaster recovery process is one where the community
proactively manages:
• Recovery and redevelopment decisions to balance competing interests so
constituents are treated equitably and long-term community benefits are
not sacrificed for short-term individual gains;
• Multiple financial resources to achieve broad-based community support
for holistic recovery activities;
• Reconstruction and redevelopment opportunities to enhance economic
and community vitality;
• Environmental and natural resource opportunities to enhance natural
functions and maximize community benefits; and
• Exposure to risk to a level that is less than what it was before the disaster.
Source: Holistic Disaster Recovery: Ideas for Building Local Sustainability after a
Natural Disaster.
6 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
• Holistic Community Recovery - attempts to incorporate all elements of the
community as part of the recovery process, encourages consideration of the
interrelationships of various sectors, such as commercial, environmental, etc., and
forces community, federal and state partners to look at long-term implications of
decisions.
• Focus - provides a clear path for recovery.
• Community Driven - involves and engages the community in the process.
• Hazard Mitigation Actions - provides an opportunity to incorporate hazard
mitigation concepts as part of the recovery effort to eliminate or decrease
exposure to damage in future
disasters.
• Community Healing - provides
opportunity for residents to join
together and function as a community
to vent their concerns, meet with one
another, and be involved in defining
and creating their future.
• Look Beyond Tomorrow - takes the
community and federal/state agencies
beyond response and into the
recovery process.
• Partnerships - fosters cooperation and coordination among federal, state, and
local agencies and organizations, both public and private.
• New Participants - creates an opportunity to bring in new participants and new
leaders from non-traditional sectors within the community.
• Empowerment - provides an opportunity for the community to take control of
its future and facilitate its recovery.
A product of the process (a LTCR plan) provides a road map to community recovery, but
the process employed to develop the plan can play a significant role in the community's
future through local partnerships and community consensus-building. The journey is as
important as the destination. The final products of the LTCR program are the completed
projects and the ultimate recovery of the community.
Basic Principles of Long-Term Community Recovery
LTCR planning is action-oriented and should support existing planning efforts in the com-
munity. The key principles of LTCR assure a focus on community recovery.
Key Principles
Long-term community recovery is:
• Community driven
• Based on public involvement
• Locally controlled
• Project-oriented
• Incorporates mitigation approaches and techniques
INTRODUCTION TO LONG-TERM COMMUNITY RECOVERY
Chapter I
LTCR
Community Meeting
INTRODUCTION TO LONG-TERM COMMUNITY RECOVERY
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 7
• A partnership among local agencies, jurisdictions, officials, and the state and
federal government
• Focused on projects that most contribute to community recovery from the
disaster
Effectiveness
LTCR can only be effective if the key principles are incorporated in the program. Critical to
the effectiveness of LTCR is the community involvement and consensus building process.
A LTCR plan and the projects contained in the plan will have a better chance to succeed if
there is strong community support. That support also will assist in soliciting funding for
key projects. Incorporating the principles and the steps outlined in subsequent sections
will assist in building consensus.
The partnership aspect of LTCR also is critical to its effectiveness since private sector, fed-
eral, and state agency involvement in the overall process will assist in identifying potential
funding for implementation. After all, the true effectiveness of a plan is measured by what
recommendations/projects are achieved and implemented.
The timing of achievements of the LTCR plan also plays an important psychological role in
the process and provides momentum in building consensus. Determining priorities in
achievements plays an important role in the community's perception of LTCR's success.
LTCR Planning and Comprehensive Planning
The LTCR planning process differs from the typical comprehensive planning process
because it is focused on plans and projects to address damages sustained from the disas-
ter and to aid in the community's recovery from the disaster. Existing plans, policies, and
studies must be reviewed and considered as part of the LTCR process. The LTCR plan is
strategic by nature and is action oriented. All aspects of the community may not be incor-
porated in the LTCR plan unless they were affected by the disaster.
In addition to the comprehensive plan, the LTCR planning process should take into
account other plans that have been prepared for the area or are underway.
• Local Mitigation Plans/Strategies - there are opportunities for collaboration of
the LTCR effort and Mitigation Planning activities. Mitigation techniques are
important considerations for projects in the LTCR plan.
• Comprehensive Economic Development Strategy (CEDS) - this EDA-sponsored
plan can provide support for LTCR strategies and may contain specific
recommendations for project development.
• Transportation Plans - prepared by the local Metropolitan Planning
Organizations, Regional Planning Commission, or State. The Transportation
Improvement Program (TIP) is especially important to review and coordinate.
Users of the Self-Help Guide
The intended users of the guide are communities that have the resources and capacities
to conduct long-term community recovery independently and would benefit from the
ability to implement an established and proven process rather than developing its own
process. Typically, damage to such a community would range from none or minimal for a
limited service government (has few full-time staff and usually no full-time administrator),
from none to moderate damage for a full-service government, and from none to possibly
one area of severe damage for a major metropolitan area government.
Chapter I
LTCR
8 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
It is important that communities have the resources and capacities to conduct long-term
community recovery. A limited service government may not have the resources within
the community but may be able to bring in a consultant, a Regional Planning Agency, or
volunteers to undertake a LTCR process if damages are minimal to moderate. Full service
governments and major metropolitan areas will typically have the resources to carry out a
LTCR process when the damages are not excessive.
Summary
This guide provides guidance for building a LTCR program, documents case studies, exam-
ples, and success stories, and offers guidance and suggestions for involving the communi-
ty in the recovery program. LTCR consists of a process and a product (a LTCR plan), both of
which are critical to the success of the program. Finally, the local, state, and federal part-
nerships required of the LTCR process will contribute to a more rapid and sustainable
community recovery.
This guide is just that - a guide. The material provides a template that has been used for
LTCR in the past. You may want to modify and/or refine the steps set forth in this guide to
suit your particular community and/or the resources at your disposal. The LTCR program
for your community is YOUR program.
INTRODUCTION TO LONG-TERM COMMUNITY RECOVERY
Chapter I
LTCR
INFORMATION INCLUDED WITH SELF-HELP GUIDE
In addition to this guide other materials and information that might provide assis-
tance in carrying out the LTCR planning process in your community are available to
you. This includes:
• Results of the FEMA Needs Assessment that was conducted for your
community, (if undertaken)
• Compact Disc Containing:
• Electronic version of the LTCR Planning Process Self-Help Guide
• Recent LTCR plans and background materials
• Recovery Value (RV) Worksheet (Step 8)
OTHER RESOURCES
In addition to the materials provided with this guide, other documents/manuals
that may be of assistance include:
• Mitigation Planning 'How To' Guides, (FEMA Pubs. 386-1; 386-2; 386-3;
386-4; 386-6; and 386-7) http://www.fema.gov/fima/resources.shtm
• Technical Guidance Papers - P
lanning for Post-Disaster Recovery and
Reconstruction, Chapters 3, 4, and 5;
http://www.fema.gov/rrr/ltcr/plan_resource.shtm
•Holistic Disaster Recovery: Ideas for Building Local Sustainability after a
N
atural Disaster http://www.colorado.edu/hazards/holistic_recovery/
For a complete list of resources and information refer to the RESOURCES section in
the APPENDIX.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 9
Chapter II
BUILDING A LONG-
TERM COMMUNITY
RECOVERY PROGRAM
LTCR
BUILDING A LONG-TERM COMMUNITY RECOVERY PROGRAM
10 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
BUILDING A LONG-TERM COMMUNITY RECOVERY PROGRAM
LTCR
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 11
Chapter II
LTCR
II. BUILDING A LONG-TERM COMMUNITY
RECOVERY PROGRAM
Typically, there are 13 separate steps that comprise the long-term community recovery
planning process. Some steps must be completed chronologically and others can be
done concurrently. The typical LTCR steps are:
Step 1: ASSESSING THE NEED - Do we need long-term community recovery planning?
Step 2: SELECTING AN OVERALL LEADER AND OUTLINING A LTCR PROGRAM -
Where do we begin?
Step 3: SECURING OUTSIDE SUPPORT - Where can we get help?
Step 4: ESTABLISHING A PUBLIC INFORMATION CAMPAIGN - How do we keep the
community informed and involved in the process?
Step 5: REACHING A CONSENSUS - How do we secure community buy-in to move
forward?
Step 6: IDENTIFYING THE LTCR ISSUES - What are our opportunities?
Step 7: ARTICULATING A VISION AND SETTING GOALS - What will strengthen and revi-
talize our community?
Step 8: IDENTIFYING, EVALUATING AND PRIORITIZING THE LTCR PROJECTS - What
makes a good project?
Step 9: DEVELOPING A RECOVERY PLAN - How do we put it all together?
Step 10: CHOOSING PROJECT CHAMPIONS - Who will provide leadership for
each project?
Step 11: PREPARING A LTCR FUNDING STRATEGY - Where do we get the funding for
these projects?
Step 12: IMPLEMENTING THE PLAN - How do we make it all happen?
Step 13: UPDATING THE PLAN - When are we finished?
Each of these steps is important in the overall process. The following sections detail each
step.
BUILDING A LONG-TERM COMMUNITY RECOVERY PROGRAM
12 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
BUILDING A LONG-TERM COMMUNITY RECOVERY PROGRAM
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 13
LTCR
STEP 1:
ASSESSING THE NEED
Do we need long-term community recovery planning?
What are the Community Needs?
FEMA has developed an " Assessment
Tool" used to assess the long-term impact
of damages sustained by a community
and the resources and capacity of the
community to recover from the disaster.
This assessment focuses on damages and
resources in three general areas:
• Housing Sector
• Infrastructure/Environment Sector
• Economy Sector
The level of federal involvement in the
LTCR process is based on the findings of
the assessment as well as input from
other state and local sources that can
identify specific community needs. Based
on experience in other disasters, these are
the three general categories of need in a
community during the disaster recovery
process.
Focusing on the Specific Needs
of Your Community
The LTCR program should focus on the
specific long-term disaster-related needs
of your community. These disaster-relat-
ed needs typically fall into the three cate-
gories identified above, but other needs
may emerge that are unique to your
community. You can use the LTCR
process, or adapt it as necessary to
address these additional issues. Use the
results of the FEMA assessment to pro-
vide focus to the LTCR process. If the
Housing Sector is identified as represent-
ing a significant community need and
other sectors do not necessarily show a
need, the LTCR process should focus pri-
marily on the housing needs.
Identification of specific issues and proj-
ects related to these needs are addressed
in subsequent steps in the LTCR program.
Chapter II
Step 1
Assessing the Need
ASSESSING THE NEED • STEP 1
CONSIDER CONDUCTING
A SWOT ANALYSIS
• What are the community's
STRENGTHS?
• What are the community's
WEAKNESSES?
• What are our
OPPORTUNITIES as a result
of the disaster?
• What are the THREATS?
Housing
Infrastructure
Economy
14 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 1
Assessing the Need
LTCR
STEP 1 • ASSESSING THE NEED
WHAT ARE YOUR COMMUNITY'S NEEDS AS A RESULT OF THE
DISASTER?
• What extent/type of damages did we sustain and to what areas?
• What are the potential long-term impacts of these damages?
• What do we need if we don't undertake LTCR?
• What are the housing needs in the community? Quantity? Quality/Type?
Location? Obstacles?
• What are the community infrastructure needs or environmental issues that
need to be addressed? Are these existing? Growth plans?
• What are the community's economic needs as a result of the disaster? New
economic opportunities? Bolstering current opportunities?
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 15
Chapter II
Step 2
LTCR
STEP 2:
SELECTING AN OVERALL LEADER AND
OUTLINING A LTCR PROGRAM
Where do we begin?
Who initiates the LTCR Program?
The appropriate local governing body, such as the County Commission, Parish Leaders,
City Council, Board of Aldermen, etc., should initiate the LTCR program. It is important that
local government initiates the LTCR program and supports the overall process since key
public decisions and actions will emerge from the process. Residents of the community
need to know that their elected officials are actively engaged in the LTCR planning
process and intend to follow through on resulting recommendations.
Identifying a Leader of the LTCR Program
Once the local government decides to initiate the program, the local governing board
should appoint an individual or a small group of individuals as leader of the LTCR pro-
gram. The leader will be the spokesperson for LTCR, will "kick-off" the process, serve as the
coordinator/facilitator at the community meetings, and establish partnerships with local,
state, and federal organizations and agencies. The leader can come from the local govern-
ment or from the community at large. In either case, the leader should be someone who
has the respect of the community and whose lead the community will follow in establish-
ing a LTCR program. This leader should work hard to unify rather than divide the commu-
nity on future recovery actions.
Leadership is a critical step in the LTCR program. A good leader will serve as a beacon for
community and government involvement and will convey the importance of the recovery
process to local, state, and federal officials. A good leader will draw others into the LTCR
program and solicit individuals to serve as champions for specific projects that evolve
from the process. A good leader will make sure that all community members are given an
opportunity to participate in the LTCR program and will assure that the LTCR plan and
projects focus on the community vision for recovery from the disaster.
Communities may want to consider two leaders - one to manage the day-to-day aspects
of the LTCR program (possibly a community Planning Director, County Administrator, City
Manager, etc.) and one to serve as the visible, public face of the program (mayor, chief
elected official, or community leader) who will work together to carry out the program.
Establishing a LTCR Team
There is an advantage to establishing a planning team with broad public and private sec-
tor representation that can function as a sounding board for the LTCR program leader and
provide routine input into the overall recovery process. Such a team does not replace the
community involvement process but can often provide realistic guidance as the process
moves forward. A LTCR team should not be too large. Consideration might be given to
representatives from the following organizations for membership:
• Public Works Department
• Public Information Office
• Planning Department
• Emergency Management/Local Mitigation Coordinator
• Chamber of Commerce
SELECTING AN OVERALL LEADER AND OUTLINING A LTCR PROGRAM • STEP 2
16 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 2
Selecting an Overall
Leader and Outlining
a LTCR Program
LTCR
• Homebuilders Association (if housing is an issue)
• Neighborhood representation
• Environmental groups
• Critical Industries
• Citizen at Large
• An elected official from the community
governing body
• Public health and/or medical community
representative
• Voluntary agency representative
This LTCR team is likely to be comprised of people
who already are involved in the hazard mitigation and
comprehensive planning processes.
It is important that this planning team be used as a
sounding board for ideas. This team should not delay
the process but should facilitate issue and project
identification, provide assistance in the community
involvement process, help author the plan, and assist
in finding project champions. The team should not be
asked to provide a stamp of approval to the LTCR plan
but should seek community consensus on the plan
and eventually submit the plan to the governing body
for their approval and implementation.
Components of a LTCR Program
The individual components of a LTCR program are
detailed and discussed in ensuing sections of the
guide and illustrated in Figure 2. The LTCR program
contains the following components:
• Securing outside support
• Establishing public information and involvement
program
• Achieving consensus
• Identifying opportunities
• Articulating a vision and setting goals
• Identifying, evaluating and prioritizing projects
• Developing a recovery plan
• Choosing project champions
• Developing a funding strategy
• Implementing the plan
• Updating the plan
LTCR Planning Time Frame
Generally, the LTCR planning activities should be initiated 4 to 8 weeks after a disaster and
be completed within 6 to 12 weeks depending on the severity of the damages and the
STEP 2 • SELECTING AN OVERALL LEADER AND OUTLINING A LTCR PROGRAM
FEMA
Conducts needs assessment
Meets with local government
partners to discuss needs assessment
results and transmits Self-Help Guide
1.
2.
LOCAL GOVERNMENT
(city, county, state, tribal authority)
Long-Term Community
Recovery Program
Identify and choose a leader
Establish a planning team
Secure outside support
Establish a public
information campaign
Achieve consensus
Identify LTCR issues
Articulate a vision
Identify, evaluate and
prioritize LTCR projects
Develop a plan
Choose project champions
Funding strategy
Implementation
Update the plan
Figure 2
LTCR Steps
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 17
LTCR
SELECTING AN OVERALL LEADER AND OUTLINING A LTCR PROGRAM • STEP 2
resources available. Initiating and completing the LTCR planning process in a relatively
short time frame is important in order to capture the cooperative community spirit that
usually exists immediately following a disaster and to take advantage of the attention
(and funding opportunities) provided by federal and state agencies. Although this
process has been carried out by experienced LTCR planning teams within the 6-12 week
time frame, it may take longer for a community without experience in the process.
Summary
The LTCR leadership is critical to the overall process. The local government must initiate
the LTCR program, select a leader and support the program.
Chapter II
Step 2
Selecting an Overall
Leader and Outlining
a LTCR Program
18 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
STEP 2 • SELECTING AN OVERALL LEADER AND OUTLINING A LTCR PROGRAM
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 19
LTCR
STEP 3:
SECURING OUTSIDE SUPPORT
Where can we get help?
You Can't Do This Alone
The LTCR program will be much more effective if the community reaches out to local,
state, and federal agencies, the private sector and non-governmental organizations to
establish partnerships in the recovery process. Involving various organizations and agen-
cies in the LTCR program will eventually help to establish project "ownership" at the
agency level. Establishing ownership can facilitate support during the implementation
process when funds or technical assistance may be needed. Support from these organiza-
tions and agencies should not be limited to funding but should include ideas, insights,
time and energy. Experts in these groups may be willing to offer free advice or assistance
while others may be willing to share their insights and experiences.
Who Can Help Us?
There are a number of local, regional, state, and federal organizations and agencies that
may be able to provide assistance in a community's long-term recovery efforts. In many
cases, organizations and agencies may be eager to provide assistance following a disaster
but need to be invited to become involved.
The following represent some of the agencies, organizations, and institutions that a com-
munity should consider involving in the LTCR program. Figure 3 illustrates the relation-
ship of the outside support to the LTCR process and steps.
• County government agencies - Can any county government agencies provide
assistance? Does the county have greater resources than your community and
could it partner with you in the recovery process?
• Metropolitan Planning Organization - Is there a Metropolitan Planning
Organization (MPO) in your area that coordinates transportation planning?
Include them in your recovery planning efforts, especially if there are
transportation infrastructure needs or issues to be addressed.
• Regional Planning Commission - Does the community participate in the
activities of the Regional Planning Commission (RPC)? Is it a member? RPCs may
have outreach programs for their member communities or may be able to
provide technical assistance with project development or grant writing and
project funding identification.
• State agencies - The state will have several agencies that can provide assistance
and be partners in the recovery process. Each state will have different
department designations and organizations, but these types of agencies should
be considered:
•
Governor's Office
•
Department of Administration
•
Department of Economic Development
•
Department of Housing or Community Development
•
Natural resources or environmental agency
•
State emergency management agency / State Hazard Mitigation Officer (SHMO)
•
Department of Transportation
•
State public health organization
•
Department of Agriculture
•
State historic preservation office
•
Private foundations that emphasize projects within the state
Chapter II
Step 3
SECURING OUTSIDE SUPPORT • STEP 3
20 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 3
Securing Outside
Support
LTCR
• Federal Agencies - Similar to the state, the federal government has a number of
agencies that could be potential partners in the recovery process. Here are a few
to consider involving in the LTCR program:
•
Federal Emergency Management Agency (FEMA)
•
Housing and Urban Development (HUD)
•
Economic Development Administration (EDA)
•
Environmental Protection Agency (EPA)
•
USDA-Rural Development
•
National Oceanic &
Atmospheric Administration
(NOAA) - Ocean and Coastal
Resource Management
(OCRM)
•
Resource Conservation and
Development Councils
• Adjacent communities and/or
counties - Are there larger
communities or counties nearby
that you can collaborate with on the
LTCR plan? Do they have resources
they would be willing to provide as
part of the LTCR program? These
communities/counties are often
willing to donate staff time to a
neighboring community's recovery
efforts.
• Professional Organizations -
Depending on the specific needs of
your community, a professional
organization may be able to provide
planning resources and/or possible
project funding for the LTCR
program. Many of these
organizations have local or state chapters that could be involved in your LTCR
program or provide expertise in a particular area. Some of the organizations that
may be of assistance include:
•
International City Manager's Association (ICMA)
STEP 3 • SECURING OUTSIDE SUPPORT
EMERGENCY SUPPORT FUNCTION #14
Emergency Support Function #14 (ESF #14), Long-Term Community Recovery and
Mitigation, has been established to address recovery issues from a comprehensive
perspective following an incident of national significance. Under the National
Response Plan, ESF #14 coordinates the resources of federal departments and agen-
cies to support the Long-term community recovery of states and communities, and
to reduce or eliminate risk from future incidents. ESF #14 is led by FEMA and sup-
ported by the following primary agencies, including the Departments of
Agriculture, Commerce, Housing and Urban Development, Treasury, and the Small
Business Administration. A number of other agencies serve in a support role. The
state can also assist in identifying those federal agencies that would be of assis-
tance in your particular recovery effort.
FEMA REGIONAL OFFICES
FEMA has ten regional offices. Each
region serves several states to help
plan for disasters, develop mitigation
programs, and meet needs after major
disasters. The following is a web site
reference for FEMA regional offices:
www.fema.gov/regions
FEMA LONG -TERM
COMMUNITY RECOVERY
Long-term community recovery (LTCR)
takes a holistic, long-term view of criti-
cal recovery needs, and coordinates
the mobilization of resources at the
federal, state, and community
levels.The following is a web site refer-
ence for LTCR:
www.fema.gov/rrr/ltcr
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 21
Chapter II
Step 3
Securing Outside
Support
LTCR
•
Urban Land Institute (ULI)
•
American Planning Association (APA)
•
American Institute of Architects (AIA)
•
American Society of Landscape Architects (ASLA)
•
State Municipal League
•
State Association of Counties
•
Association of State and Territorial Health Organization (ASTHO)
•
National Association of City and County Health Officials (NACCHO)
• Educational Institutions - Is there a college, university, or community college in
the area that has departments or centers that could facilitate the LTCR program?
Many educational institutions have community outreach programs that may be
of assistance. Some educational institutions also may be willing to expand their
curriculum to accommodate a new area identified in your LTCR plan.
• Private Sector - large businesses, employers, benefactors
• Other Non-Profit Organizations
•
Extension service
•
State rural development council(s)
•
Faith-based organizations
•
Community development corporations
Coordination of Support
Any outside support will require coordination. There are several ways to coordinate out-
side support depending on the specific needs of the community and the scope of the
LTCR program. Some of the methods for coordinating support include:
• Inviting key agency staff to become members of the LTCR team. This assures that
you have the opportunity to receive their input on key issues but also inserts
them into the process and gives them a stake in its outcome, which may be
beneficial when technical, political, or financial assistance is needed for
implementation of the LTCR plan.
• Establishing weekly/regular conference calls for all outside support member
participation. This could constitute a support team task force that could be kept
apprised of the status of the process and asked for input regarding key steps in
the overall program.
• Establishing weekly/regular meetings if the support is local. This can function in
much the same way as the above support team task force but has the advantage
of face-to-face interaction.
• Inviting all appropriate organizations and agencies to the community meetings
to both solicit their input and to allow them to see the community involvement
process and community support for the LTCR program. This action also continues
to involve the media support for the LTCR process.
• Consider scheduling a "Community Recovery and Resource Day" where all local,
regional, state, and federal organizations and agencies (public and private) are
invited. Use this event as an opportunity to present the community needs, issues,
draft plans and projects and request their input, assistance, and especially
partnership in making the LTCR program successful.
SECURING OUTSIDE SUPPORT • STEP 3
22 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 3
Securing Outside
Support
LTCR
STEP 3 • SECURING OUTSIDE SUPPORT
ITEMS TO CONSIDER WHEN DEVELOPING A COMMUNITY
RECOVERY AND RESOURCE DAY WORKSHOP:
1. Local communities should identify and invite state, federal, and other
resource agencies or entities (Trust for Public Land; Habitat for Humanity,
Transportation entities, Congressional staff members; etc.) to participate.
Use existing agency contacts to seek out other potential attendees.
2. Local project stakeholder participants should include administrative,
regulatory, and technical staff.
3. The workshop forum should be informal and in a setting that will allow
discussion and brainstorming among all parties. The meeting space should
be arranged for all parties to interact. For example, a horseshoe shaped
table arrangement will allow face-to-face contact for discussion as well as a
focal point for presentations.
4. Allow at least several weeks advance notice when scheduling a workshop
to ensure adequate attendance by the participating agencies.
5. Advertise the workshop as a one-day event, but provide enough time at
the beginning and end of the meeting for people to commute to and from
the workshop, especially when considering the location of state and federal
agency offices (For example, schedule the workshop from 10:00 a.m. until
4:00 p.m.).
6. The forum process and agenda should be clearly defined for participants
prior to the meeting. Emphasize the informal dialogue and networking
opportunity
7. Schedule the meeting date to coincide with a local event, activity or
festival. This will provide an incentive for attendees to attend the
workshop.
8. If possible, include meals and snacks on-site to maximize workshop
effectiveness and to facilitate additional networking or discussion.
9. If possible, include a tour of proposed projects or sites to allow participants
to experience the project or setting in person.
10. Don't ask for money from prospective partners! Instead, build relationships
that will extend well beyond a meeting or workshop. Request ideas,
suggestions and solutions to project challenges. Seek partnerships and
assistance - technical, organizational, regulatory and financial.
11. Provide a meeting summary for all participants.
12. Host a Resource Day on a regular basis (semi-annual, annual, biannual, etc.)
depending on scope and nature of the project(s).
13. Be patient and accept that the process takes time - even disaster recovery.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 23
Chapter II
Step 3
Securing Outside
Support
LTCR
Focus on Community Needs
Keep the community's needs and issues in mind when securing outside support. Be selec-
tive, but thorough. Don't involve the state department of transportation if there are no
transportation needs or issues. On the other hand, if housing rehabilitation in the older
area of town is a need and an issue, make sure that you not only involve the state's hous-
ing agency but also the historic preservation office, the community development agency,
etc. Various state programs may be needed to bring a project to fruition.
Keep Your Partners in the Loop
Make sure all your partners inside and outside the community are kept current and up to
date on the status of the LTCR program. Use phone calls, meetings, status reports,
newsletters, as a means to keep them connected to the process. When needed, be sure to
solicit their input on steps in the LTCR program - don't just send them information. You
have involved them because they can be of assistance to your recovery. Use them.
SECURING OUTSIDE SUPPORT • STEP 3
FEMA
Conducts needs assessment
Meets with local government
partners to discuss needs assessment
results and transmits Self-Help Guide
1.
2.
LOCAL GOVERNMENT
(city, county, state, tribal authority)
Long-Term Community
Recovery Program
Identify and choose a leader
Establish a planning team
Secure outside support
Establish a public
information campaign
Achieve consensus
Identify LTCR issues
Articulate a vision
Identify, evaluate and
prioritize LTCR projects
Develop a plan
Choose project champions
Funding strategy
Implementation
Update the plan
POTENTIAL AGENCY & ORGANIZATIONAL SUPPORT
County Government Agencies
Metropolitan Planning Organizations
Regional Planning Commissions
State Agencies
Economic Development
Natural Resources
Environment
Emergency Management /
Hazard mitigation
Administration
Governor's Office
Transportation
Housing
Community Development
Historic Preservation
Health
Agriculture
Federal Agencies
FEMA
HUD
EDA
EPA
USDA - Rural Development
NOAA - OCRM
Adjacent Communities / Counties
Professional Organizations
ICMA
APA
ULI
AIA
ASLA
State Municipal League
State Association of Counties
Educational Institutions
Private Sector and Non-Profits
LONG-TERM
COMMUNITY RECOVERY
PROGRAM
LTCR Steps and Outside Support
Figure 3
LTCR Steps and Outside Support
24 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 3
Securing Outside
Support
LTCR
STEP 3 • SECURING OUTSIDE SUPPORT
Case Study
North Central Illinois Council of Governments
Securing outside support is a multi-faceted objective that should be tackled from
several directions. Involving the Council of Governments (COG) in your region can
be a very productive outreach effort. After a destructive tornado hit the Village of
Utica, Illinois,in April 2004, the LTCR team elicited the support of the North Central
Illinois Council of Governments (NCICG). NCICG is a non-profit planning organiza-
tion that supports local governments by providing planning, technical assistance,
and grant writing services for communities like Utica, where many local officials are
part-time. NCICG had provided planning services to Utica in the past. They knew
the local officials and key stakeholders, understood the state agency framework and
contacts, and held the planning-related documents for Utica and the region's com-
munities. The success of the LTCR process would depend on securing support from
this group.
The connection between the LTCR team and the NCICG staff was encouraging from
the start. NCICG Executive Director Nora Fesco-Ballerine brought boxes of planning
and environmental documents to help inform the LTCR team about regional growth
strategies, environmental concerns, and existing projects. Kevin Lindeman, senior
planner at the NCICG, supported the LTCR team by sharing his experiences in devel-
oping the Utica Comprehensive Plan and providing technical assistance as projects
were identified. Because the NCICG had experience in grant writing, they also
helped the LTCR team communicate with state and federal agency representatives
in charge of grant programs. Without the pivotal support of the NCICG, the Utica
United Recovery public planning process would not have been so successful. And
with their hands-on involvement in the LTCR process, NCICG staffers were able to
push the plan into the implementation phase by writing grants and securing dollars
for identified project.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 25
Chapter II
Step 4
LTCR
Step 4:
ESTABLISHING A PUBLIC INFORMATION CAMPAIGN
How do we keep the community informed and involved in the process?
Why do we need a public information campaign?
The LTCR plan's success depends on the extent of community involvement. The goal of a
LTCR public information campaign is to get community members involved in the process,
while the challenge is to focus attention on long-term planning for the community when
many individuals' long-term circum-
stances may be unclear.
It is easy to become caught up in the
LTCR effort and neglect the community
involvement aspect until it is too late.
Often, community members' and com-
munity leaders' visions are similar and,
because no discernable gap is apparent,
a strong public information strategy
may not seem important.
Should we appoint an official
Public Information position?
It is useful to appoint one person to
carry out the public information cam-
paign. However, this decision is
dependent on your budget, the scope
of the LTCR effort and the size of your
community. A LTCR team member or
public/private volunteer can be consid-
ered for this role. The importance of this
role increases as the scale of the LTCR
effort increases.
It is useful to appoint someone who can
work efficiently and creatively with min-
imal oversight. This position is different
from the rest of the team because with
it comes the unique responsibility of
conducting an informational campaign
targeted to all members of the commu-
nity - many of whom have never attend-
ed a public meeting. The person in this
role should develop a strategy tailored
to the community's LTCR effort. In addi-
tion, the role requires excellent oral and
written communication skills to write
press releases, answer media inquiries,
and respond positively to media and
community member criticism.
ESTABLISHING A PUBLIC INFORMATION CAMPAIGN • STEP 4
PUBLIC INFORMATION
CAMPAIGN
Committing to the public information
campaign early and fully ensures a suc-
cessful plan by:
• Giving community members a
chance to develop their own
vision for the future of the
community and transcend
individual issues - it gives them
hope for the future and
empowerment for the present
• Establishing a high LTCR
profile, which may bring issues
to the forefront and increase
the possibility of garnering
funding
• Encouraging the community
to take ownership of the plan
and expect results - even after
the LTCR team is finished
• Making it easier to find project
champions and funding
• Prioritizing projects in the LTCR
plan
• Establishing community 'buy-
in' to the plan and the process
• Clarifying that the plan is
indeed driven by community
members - and not by outside
parties who may have another
agenda
26 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 4
Establishing A Public
Information
Campaign
LTCR
Establishing a vision
Many community members may be overwhelmed and inundated with information after a
disaster - this drives the need to keep the public information campaign simple and
straightforward, and to establish an early vision. Public information materials should have
a consistent look and feel to help distinguish this effort in the community. These materials
might consist of the following elements:
• Choosing a slogan for the LTCR effort, for example "Your projects.Your future. Get
involved."
• Communicating a consistent message
• Emphasizing this is the community's plan
• Explaining the purpose of LTCR
Make local media partners in the process
It is critical to establish positive relationships with a variety of media sources and to con-
sider them partners in the public information campaign. Keep the media informed
throughout the process. A strong media presence will put the LTCR effort in the public
spotlight and encourage strong community participation. Past LTCR efforts received such
strong support from the media that aver-
age meeting attendance hovered around
600 people.
LTCR efforts usually receive excellent cov-
erage from major local newspapers with
many front-page stories. Newspapers
were the most useful supporters in past
LTCR efforts and provided excellent cov-
erage of the community meetings. Also
be sure to establish relationships with
small local newspapers that are distrib-
uted on a weekly or monthly basis. Local
papers often support the LTCR planning effort by offering free advertising space and
opportunities for interviews.
Getting the message out
The scale of your communications strategy will not only depend on the size of the com-
munity and scope of your LTCR effort, but also on your budget. This section suggests a
variety of options intended to inform the community and motivate individuals to attend
LTCR community meetings. The options vary in price from free to several thousand dollars
- market rates can often be negotiated.
People or groups that may be of assistance
• LTCR Team - The LTCR team is an excellent resource and must be tapped to reach
out to community leaders, organizations and associations. Since the team will be
meeting with these parties, members must come equipped with communication
materials and available meeting dates. An example may include an informational
packet regarding LTCR.
STEP 4 • ESTABLISHING A PUBLIC INFORMATION CAMPAIGN
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 27
Chapter II
Step 4
Establishing A Public
Information
Campaign
LTCR
• Mass Retailers - Flyers are most easily distributed through mass means. Large
chain stores (i.e., Lowe’s, Home Depot, Wal-Mart) are often willing to distribute
flyers.
• School System - Past efforts also found the school superintendents' offices to be
very cooperative and willing to send home a flyer with each child in the public
school system.
• Chambers of Commerce - Local Chambers of Commerce are useful sources for e-
mail blast lists and may be of assistance in recruiting the support of local
business owners.They may be willing to add an update corner in their
weekly/monthly newsletter. Flyers also could be attached to the mass e-mails so
local business owners can put them in their windows.
• Volunteers - Often, volunteer assistance may be recruited from sources such as
community colleges or retirement communities.
• Organizations, associations and faith-based groups - Assistance may be
recruited from local organizations, civic associations and faith-based groups.
Communication mediums
• Newspapers - Past, large-scale LTCR
efforts conducted advertising
campaigns to get people to the
LTCR community meetings. To
further this goal, 2 newspaper
inserts were placed in the major
newspaper in each county: 1) a
listing of all
suggestions/recommendations
made during the LTCR community
meetings, and 2) the rough-draft
LTCR plan. Both inserts included an
email and physical address to mail
comments.
• Blast Fax / Email Lists - Each team
member should ask every contact if
he/she has access to a fax or email
blast list - these are invaluable for
getting the community leadership,
activists and business owners
involved in the process.
• LTCR Mailing List - Use the team to assist in the development of a contact list
that includes each person or group each member met with. Email this list before
every meeting.
• Radio - Radio often offers a variety of free opportunities to advertise workshops
and may also be interested in conducting interviews with community leaders and
LTCR team members. If time permits, it is useful to write copy for a 15 second, 30
second and 1 minute radio time.
ESTABLISHING A PUBLIC INFORMATION CAMPAIGN • STEP 4
Example of Newspaper Insert
28 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 4
Establishing A Public
Information
Campaign
LTCR
• Flyers - Flyers advertising the
community meetings also are
beneficial and may be distributed
through the channels mentioned
above. It is best to keep the flyer
message simple and concise.
• Internet - The Internet is a great
tool to supplement your advertising
efforts. Since the PR message must
be kept simple, establishing a web
site would provide an excellent
additional information source to
your marketing campaign.
• Office open house - If you are
fortunate enough to have a
separate LTCR office, stage a grand
opening for the press and local
community members. Include
informational packets for the press
and display past LTCR plans.
• Television - The local cable access
channel and local news channels
are often interested in participating in the LTCR events or conducting interviews
and usually request to be kept updated with current information.
• Newsletters - utility providers, organizations and governmental entities
Reaching minority groups
It is essential to reach minority and/or low-income groups who represent a significant part
of the population, especially if their native language is not English. These groups rarely
participate in public meetings but are often affected by the projects proposed in the LTCR
plan. Their voices need to be heard. They are often reached via radio stations, by placing
flyers at shops they frequent, or through faith-based groups and churches.
How do we respond to criticism?
The LTCR effort may encounter criticism from various sources. The best defenses against
this are to keep the press updated on the LTCR efforts and to wage a successful PI cam-
paign that results in high attendance at the LTCR community meetings. While past LTCR
efforts faced media challenges, the effort was almost always fully supported after a high
resident turnout at the community meetings - when attendees realize that the plan is
truly driven by the community.
You can expect some community members to speak out against components of the LTCR
effort. When this occurs, it is useful for the LTCR team leader and appropriate team staff to
meet with these community members individually. While this may not resolve all issues, it
will clear up any misunderstandings about the LTCR mission.
STEP 4 • ESTABLISHING A PUBLIC INFORMATION CAMPAIGN
Example of Community Flyer
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 29
Chapter II
Step 4
Establishing A Public
Information
Campaign
LTCR
ESTABLISHING A PUBLIC INFORMATION CAMPAIGN • STEP 4
Case Study
Public Information Campaign - Santa Rosa County, Florida
Hurricane Ivan struck Santa Rosa County in September of 2004 and damaged or
destroyed just over half of its 44,000 housing units. Post-disaster, residents were
inundated with information and the Public Information Campaign needed to be
focused and concise. The campaign consisted of two distinct phases - meeting one
and meeting two. Since the first meeting had relatively low turnout (approximately
300 people), the campaign changed its strategy for the second meeting, which
resulted in a tripling of attendance.
The preparation for the first meeting included many initiatives: the opening of a
LTCR storefront to encourage citizen walk-ins; keeping newspapers up-to-date via
press releases; distribution of flyers by large chain-stores and the public school sys-
tem; emailing blast lists; and conducted limited grass-roots marketing. The newspa-
per advertising campaign included a somewhat busy half-page advertisement that
focused on informing the public, rather then getting them to the meeting. This
made for lengthy copy and added to residents' information overload. The effort
received excellent newspaper attention overall and was mentioned on the front
page the day of the meeting. However, attendance at the first meeting was low, and
the team was concerned that it would not have enough public support behind the
plan.
The Public Information Campaign developed a new strategy following the first
meeting’s low turnout. The new strategy focused on extensive grass-roots commu-
nication and development of a simple newspaper advertising campaign with a
straightforward full-page advertisement (a one line slogan and meeting informa-
tion) in addition to an insert in the local paper detailing all the comments and ideas
obtained from the first meeting. The effort continued to receive frequent newspa-
per coverage (not all of it was positive).The flyer distribution continued, but the fly-
ers were changed to a simpler layout similar to the newspaper advertisement -
therefore adding a 'branded' element to the effort. In addition, many local business-
es agreed to put meeting flyers in their windows and a few of the large churches
announced the LTCR meeting information. Turnout tripled from the first meeting to
the second meeting.
30 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
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STEP 4 • ESTABLISHING A PUBLIC INFORMATION CAMPAIGN
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 31
Chapter II
Step 5
LTCR
STEP 5:
REACHING CONSENSUS
How do we secure community buy-in to move forward?
Introduction
You've gathered data to make coherent and compelling presentations to community
stakeholders and the general public. It is time to determine which stakeholder groups
need to agree in order for the LTCR program to move forward.
Spelling Things Out
You have been building support for your LTCR program from the day you begin gathering
the data necessary for identifying the community issues and needs. Data gathering or
research is like good listening. The LTCR plan is a way of spelling out what the community
is saying and what your research has identified.
"Spelling things out" may be a step that recurs several times as part of an overall feedback
loop. You may need to go back to spell things out more than once in an effort to build
consensus among multiple stakeholder groups.
Mapping Your Network of Stakeholders
Every community includes a complex network of relationships, all of which affect whether
your LTCR program will ultimately succeed or not. Typically, that network consists of the gen-
eral public, the private sector, and government (see STEP 3: SECURING OUTSIDE SUPPORT).
But your community may have other significant stakeholder groups. Be sure to include them
in the process of building consensus.
Based on the support you've identified in STEP 4 and other community stakeholder
groups, you should consider creating a network "map" that shows all of the constituencies
that will have to be taken into account if your LTCR program is going to succeed.
Keeping the Public Involved
The public is one of your best resources,
and without the public’s support the
LTCR plan will likely fail. The advantages
of that public involvement include:
• Improved community relations;
• Learning from and informing
citizens;
• Persuading citizens;
• Building trust and allaying anxiety;
• Building strategic alliances; and
• Gaining legitimacy for decisions.
There are also benefits for citizens when they are included in a participatory process. They
include: education; increased feelings of control, helpfulness, and responsibility;
decreased feelings of alienation and anonymity; the ability to persuade and enlighten
government; and practicing active citizenship.
LTCR
Public
Private
Other
Government
Figure 4
Network of Stakeholders
REACHING CONSENSUS • STEP 5
32 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 5
Reaching Consensus
LTCR
Aligning with Private-Sector Interests
The private sector brings extensive resources to bear along with an unwavering commit-
ment to the restoration and revitalization of the communities that support and promote
their livelihood. Businesses may also wield a great deal of political power in your commu-
nity. It is important to access their resources and consider the realities of their influence.
Working Collaboratively with Government
The State and Federal governments-beyond simply those departments or agencies that
may be directly involved in the long-term community recovery effort-offer resources
(including information and contacts). They may be able to identify linkages, overlap,
and/or gaps in proposed LTCR projects
and recommend alternative solutions
that would maximize the use of available
state and federal recovery and rebuilding
resources.
Identifying Other Stakeholder Groups
When identifying other key stakeholders
to include while building consensus, con-
sider their ties to the community, ability
to access and leverage resources, their
political influence, and their relationships
to, and potential impact on different
aspects of your LTCR program.
Reaching Out to All Stakeholders
Establish a time frame for outreach to all stakeholders that fits within the LTCR program
timeframe. You will want to be engaged in conversations with stakeholders well before
decisions are finalized and implementation begins. The operative phrase is: "No surprises!"
When people feel blindsided, the conversation can completely shut down.
The forms of outreach identified and discussed in the Public Information Step can be used
to address different audiences. Your goal is to build consensus for the LTCR program and
plan. Use the forms of outreach best suited to a particular audience.
Working with the Media
As noted in the Public Information Campaign Step, making use of the local media is critical
and may include the local newspaper,TV stations, public access station, radio, community
web sites and billboards. The media is a crucial element in gaining community support -
especially the support of community members that are not actively involved in the com-
munity but keep abreast of current developments. Post-disaster, community members
that do not normally read the paper, listen to the radio, or watch the news use these
sources to stay informed of the recovery effort.
Relationships with the media can often be tricky. Past efforts found the media to initially
be skeptical of the effort, but later embrace it and its value to the community. This result-
ed in many front-page stories, a discounted advertising rate, and furthering public support
and participation. At a minimum, the local newspaper/s (daily and weeklies) should be
kept informed of the LTCR effort progress. Failure to do so may result in the media putting
a negative spin on your efforts and community leaders tend to not want to be associated
with any negative or controversial efforts. Furthermore, since some of the community
leaders' positions are the result of public support, getting the media 'on your side' is a crit-
STEP 5 • REACHING CONSENSUS
Stakeholders Discussion
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 33
Chapter II
Step 5
Reaching Consensus
LTCR
ical element to getting elected officials and/or their appointees involved in the LTCR
process. This is also pivotal for recruiting project champions (discussed later in this
report). Community leaders also may assist you in fostering positive relationships with the
media.
Media attention ensures that individual citizens will be involved in the process, or at least
aware of the process, and want to see results upon completion of the LTCR plan. Most
important is that media involvement gets your average citizen to attend LTCR meetings, thus
ensuring the LTCR plan is truly their plan.
Addressing Conflicts
Conflicts can be uncomfortable. They can appear intractable. But it is important not to
ignore differences, either by glossing over them or by silencing them. Unresolved differ-
ences, especially in community groups, will almost certainly interfere with the LTCR
process. So it is worth the time to understand and mediate conflicting interests.
One way to mediate conflict is to discover the common interests that can potentially unite
disparate stakeholder groups. Fundamentally, each group is part of a community that is
interdependent. People often lose sight of that interdependence.
Achieving Consensus
Communities of all sizes may include highly diverse stakeholder groups with widely differ-
ing and conflicting priorities. These dynamics can become even more difficult to manage
the greater the community's diversity and the wider its geographic reach. Working for
consensus under those circumstances may seem impossible.
Everyone working together toward a common goal is a practical necessity. Some commu-
nity processes are able to move forward with everyone working at cross-purposes, but a
complex long-term community recovery program requires community collaboration in
order for the program to achieve its potential for strengthening and revitalizing the com-
munity.
Community stakeholder groups not only need to recognize that they are working toward
the same overall vision; they also need to work together to get there and to achieve at
least some of their own priorities.
REACHING CONSENSUS • STEP 5
34 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 5
Reaching Consensus
LTCR
STEP 5 • REACHING CONSENSUS
CONSENSUS-BUILDING TECHNIQUES
FOR COMMUNITY MEETINGS
Facilitating the Full Participation of Every Stakeholder
Make sure everyone has a turn. Ask dominant talkers to stand down once they've
made their points. Urge silent members to contribute. Probe for clarification when
statements seem vague. Slow down the proceedings if the information is coming in
too quickly for you or the group to process.
Facilitating means getting all the facts on the table.
Tracking Group Dynamics
In the heat of an emotional community conflict, step back a moment, take a deep
breath and ask: What is really going on here? What is really at stake for these com-
munity members? Is something happening here that isn't being said directly?
Tracking group dynamics means paying attention to actions that speak louder than
words.
Mediating among Conflicting Agendas and Perspectives
Find common ground. Insist that that group members behave respectfully (even if
they don't feel it). Determine what each opposing side can afford to give and where
each side draws the line. Don't rush for consensus before the group as a whole has
had a chance to process the conflicts and disagreements. Encourage creative solu-
tions.
Mediating means holding all the conflicting pieces together until they form a workable
plan that everyone can support.
Moving the Process Forward
Keep track of time. Keep the agenda and objective(s) in the foreground continually.
Press for decisions when the group seems able to move ahead, but do not force
issues that the group has not sufficiently processed.
Moving the process forward means pushing steadily without derailing the process.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 35
Chapter II
Step 5
Reaching Consensus
LTCR
REACHING CONSENSUS • STEP 5
Case Study
DeSoto County Rodeo and Equestrian Complex
While it is true that community opinion will affect the LTCR planning process, com-
munity consensus will help implement it. A great example of how one project in
particular was instrumental in rallying the community behind recovery efforts can
be found in the Rodeo and Equestrian Complex project in DeSoto County, Florida.
In 2004, several back-to-back hurricanes severely damaged properties throughout
the county, including the regional rodeo facility in the town of Arcadia, the DeSoto
County seat. The Rodeo
grounds were a very popular
county attraction that
embraced the region's agri-
cultural heritage and drew
thousands of people to
Arcadia seasonally.
DeSoto was a county divided
on recovery efforts in many
ways, but as the LTCR process
began, rebuilding the rodeo
facility was quickly identified
as an issue that most of the county could get behind. The LTCR team focused on
what it meant to rebuild the rodeo grounds as an economic driver rather than con-
centrating on disputable conflicts that would further divide the county. At the LTCR
community meeting, public attendees were drawn into the discussion of recovery
by questions such as: Should the rodeo be rebuilt as is? Should it be redeveloped
and expanded on the existing site? What other locations could be considered?
Should it include equestrian or other facilities? The public was invited to comment
on sticky notes and post them on a large map of Arcadia. Residents offered many
creative ideas, such as relocating the facility to an area that could accommodate a
world-class, multi-functional equestrian facility that would allow for championship
level competitions, a covered rodeo arena, riding lessons, and livestock stables and
barns. Other ideas poured in, as well, including using the facility as community
space for a farmers market, a County fair, for profit-driven concessions, a visitor cen-
ter, or a museum featuring DeSoto's rodeo history.
Community consensus in this example meant that the county should rebuild the
damaged rodeo facility. But more than that, the LTCR team was able to unite the
DeSoto County community around long-term community recovery by focusing on
projects like the Rodeo and Equestrian Complex that represented the restoration of
their battered community spirit and economic welfare.
36 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
STEP 5 • REACHING CONSENSUS
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 37
Chapter II
Step 6
LTCR
STEP 6:
IDENTIFYING THE LTCR ISSUES
What are our opportunities?
From Disasters Come Many LTCR Opportunities
Looking at a disaster from a different perspective can help a community realize that many
great opportunities can unfold from a disaster event, such as:
• Rethinking the Community Vision - Assumptions used to establish the previous
community vision or plan may have dramatically changed as a result of the
disaster. LTCR provides an important
opportunity to open up a dialogue
with the public about whether to
"rethink" the existing vision. For
example, safety could be a much
higher priority for residents, translating
into the need for updating the
building code, or new policies
encouraging sustainable development
practices, or working towards a
diversified economy to avoid
dependence on one business sector.
• Improving the Previous Condition - LTCR provides the community an
opportunity to take a critical look at its condition prior to the disaster and
improve upon it by asking: What did we like about our community then? What
didn't we like? How can we build back better and safer? One example might be
to move forward with plans to construct a multi-purpose community center to
replace a small neighborhood center that was destroyed. Another example may
be improving the accessibility to primary health care (especially to under-served
populations) and expanding opportunities to build healthy communities.
• New Opportunities Unveiled - When damage to critical infrastructure and
private property occurs, a range of new opportunities will be exposed. These can
range from new ways to redevelop properties using state of the art technologies
and sustainable development concepts, to investing in workforce training
programs and facilities to encourage an emerging market.
• Unparalleled Public Focus - Getting the public's attention on planning
initiatives is difficult yet critical. This is the community's plan, and without
extensive community involvement and support, the projects will likely never
come to fruition. You can be assured that after a disaster event, the public is not
only paying attention, but also getting involved and expecting results. However,
it may be difficult to shift the community's focus to the long-term when many
community members are concerned about short-term needs and their individual
well-being, which may seem severed from the long-term needs of the
community. As discussed above, attendance at public meetings on LTCR efforts is
typically high due to extensive marketing and communication efforts. Access to
televised media and front-page newspaper coverage is a critical instrument to
rally public support and attendance at the LTCR meetings, as are grass roots
marketing efforts. It's up to you to keep the focus positive and progressive - or to
transform it to positive and progressive!
IDENTIFYING THE LTCR ISSUES • STEP 6
Example of Community Vision Logo
38 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 6
Identifying the
LTCR Issues
LTCR
• Critical Government Support - Unlike most planning efforts, LTCR provides an
opportunity to work collaboratively with every level of government. For a very
brief period, the federal, state, and local government will be supporting your
efforts with time and financial assistance. It's up to you to organize the support
quickly, check in often, and keep the focus on your community!
• Community Healing - Every community survives disaster in their own way.
Mourning the loss of life and absorbing personal and financial devastation are an
important part of the process. In light of that, LTCR provides the community an
opportunity to gather resolve and spirit, progress forward, and heal through the
active process of rebuilding together. This may indeed be the most important
opportunity of them all.
When do we begin to identify
Issues?
Issue identification begins with initia-
tion of the LTCR process. What issues
existed prior to the disaster? Review
existing plans and studies for the area.
Meet with community leaders, commu-
nity organizations and agencies, private
sector interests, and neighborhood
groups to identify issues that have aris-
en from the disaster. Use subsequent
community meetings to further
expand and refine those issues and
begin to identify projects that might
address the issues.
"Make No Little Plans"
As Daniel Burnham, a renowned urban
planner at the turn or the 19th Century,
once said, "Make no little plans.They
have no magic to stir men's blood.
Make big plans…." In other words, take
inspiration from the resiliency of your
community and, in turn, let your
Recovery Plan inspire - Think Big.In
past LTCR initiatives, private sector
developers have been motivated to
invest in the communities where the
projects identified were born from the
community, captivated the imagina-
tion, and had commitment from the
leadership. Promoting an inspirational
LTCR plan will create the "magic" need-
ed to progress it into implementation.
In short, necessary elements for suc-
cessful planning are in place - you have
big ideas; the public's attention and
will; financial support from federal,
STEP 6 • IDENTIFYING THE LTCR ISSUES
HAZARD MITIGATION
OPPORTUNITIES
Don't overlook the opportunity to take
actions to reduce or eliminate risks from
future disasters. Hazard mitigation plan-
ning is an important aspect of a success-
ful mitigation program. States and com-
munities use the hazard mitigation plan-
ning process to set short and long-range
mitigation goals and objectives. Hazard
mitigation planning is a collaborative
process whereby hazards affecting the
community are identified, vulnerability
to the hazards are assessed, and consen-
sus reached on how to minimize or elim-
inate the effects of these hazards. Two
programs you should be aware of and
consider as part of the LTCR effort are
Hazard Mitigation Section 404 and
Section 406. The state is responsible for
the Section 404 program (Hazard
Mitigation Grant Program-HMGP) and
Section 406 funds are used to reduce or
eliminate future damage to facilities
impacted during the disaster. In recog-
nition of the importance of planning,
States with an approved enhanced State
Mitigation Plan in effect at the time of
disaster declaration may receive addi-
tional HMGP funding. A more detailed
overview of these and other Mitigation
programs is provided in STEP 11,
PREPARING A LTCR FUNDING STRATEGY.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 39
Chapter II
Step 6
Identifying the
LTCR Issues
LTCR
state, and local government and agencies; and project momentum going for you. Don't
miss the opportunity to act on significant projects that could quickly advance the com-
munity on the path to revitalization. Strike while the iron is hot - and before the public's
attention turns to the next breaking news.
IDENTIFYING THE LTCR ISSUES • STEP 6
Case Study
Success of "Thinking Big" in Utica, Illinois
The Village of North Utica, Illinois was hit by a tornado on April 20, 2004, that killed
nine people and destroyed the north end of the historic village.The Village Hall,
Township Hall, Ambulance Building, and 56 other homes and structures were
destroyed.
Under the leadership of Mayor Fred Esmond and FEMA LTCR staff, the Village
thought BIG. The Village, FEMA, and other governments and citizens produced the
Utica United Recovery Plan that called for the expenditure of about $20 million dol-
lars to restore the town and to construct a number of improvements to the commu-
nity. Projects contained in the plan were the result of thinking BIG at the issue iden-
tification stage. Some of the major improvements called for were the rerouting of a
state highway through the downtown, the removal of the downtown from a flood-
plain, the enhancement of the historic Illinois and Michigan Canal, improvements to
the local economy and tourism, and the reconstruction and beautification of the
historic downtown.
Grants have been or will be provided by FEMA, the Illinois Emergency Management
Agency, the U.S. Economic Development Administration, the Illinois Department of
Commerce and Economic Opportunity, and the U.S. Department of Agriculture to
cover some of the key projects contained in the plan, especially the rerouting of the
state highway. The community continues to move forward on plan implementation
and acquiring the funding needed to implement other projects in the plan.
40 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
STEP 6 • IDENTIFYING THE LTCR ISSUES
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 41
Chapter II
Step 7
LTCR
STEP 7:
ARTICULATING A VISION AND SETTING GOALS
What will strengthen and revitalize our community?
Establishing a Logical Framework for Decision Making
Every decision reflects not just technical, engineering, or financial considerations but also
community preferences and demands. Establishing a logical framework for your LTCR pro-
gram can show key community stakeholders how the components of the whole program
fit together and how those components contribute to the objective of strengthening and
revitalizing your community.
You could present the framework for decision-making as a 3-level pyramid, with each level
supported by the one below it - Articulate a community vision, set goals, and develop
long-term community recovery projects (See Figure 5).
Articulating a Vision for Your Community
LTCR planning offers an opportunity for your community to establish a renewed vision for
its future. The community's vision establishes a direction that everyone can drive toward
together. Without a common direction, groups in your community can end up working at
cross-purposes.
You may already know what kind of future your community wants to make a reality.
Regardless of your starting point, as you begin having conversations with community
stakeholders and organizations, listen to what people say. Ask about their hopes and
dreams. Find out what your community stakeholders agree would make a good direction
to work toward together.
Here are some questions to consider asking:
• What are the key issues facing the community related to the ability to recover
from the disaster?
• What kind of community do you want to be in the next five, ten, or fifteen years?
• What kind of community would make a good home for your children and
grandchildren? What kind of community would you be proud to share with
visitors?
• What would your community look like if it were more resilient and more
dynamic?
The vision statement, developed by the LTCR team and the community, doesn't have to be
perfect! Just jot down what you know. Revise it as you get new information. And keep
ARTICULATING A VISION AND SETTING GOALS • STEP 7
Community Vision
Goal 2Goal 1 Goal 3
Project A Project B Project C Project D Project E Project F
Figure 5
Decision Making Framework
42 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 7
Articulating a Vision
and Setting Goals
LTCR
revising it as you go along. Having a vision is a living, dynamic process. You can use it to
steer your course together, even as you correct that course along the way.
Setting Concrete, Over-Arching Goals to Support Your Vision
Goals will mark the actual progress toward your vision. They will give you and your com-
munity stakeholders a clear picture of how your LTCR program will achieve its intended
purpose. For example, you know you want a stronger and more vital community. But
what exactly will that look like? What are your strategies for achieving it?
Realizing Your Goals with Targeted Projects
In order to achieve the goals to meet the community's vision, a number of projects related
to each of the goals must be developed. Step 8 details how to evaluate and prioritize
those projects. For now it's just important to recognize where they fit in the larger frame-
work of your LTCR program.
Getting the Facts and Being Open to Feedback
Gathering facts and information are important parts of developing your LTCR program.
Ideally, fact gathering and research will continue throughout the process of putting your
LTCR program down on paper. During implementation, it will also be important to contin-
ue gathering information to stay on track. Staying on track means being open to feedback
on issues, goals, and eventually projects. This feedback should come from the community
at large, government officials, community groups and organizations.
STEP 7 • ARTICULATING A VISION AND SETTING GOALS
COMMUNITY VISION FOR CHARLOTTE COUNTY, FL
Charlotte County is…
• A progressive community that offers urban services within the unassuming
feel of an Old Florida-style community.
• A community that provides an alternative to the faster-paced style of cities
like Naples and Sarasota.
• A community that opens its doors to new residents and visitors without
affecting the values and lifestyles of its current residents.
• A community that provides opportunities for its young people in the way of
jobs, education, and recreation as reasons to stay in Charlotte County.
• A mixed income community that treats everyone as equal and values the
contributions of all its citizens.
• A community that recognizes the importance of the natural environment
and balances the need for growth and economic development with the
maintenance and improvement of the quality of its natural features.
• A community that has a diverse economic base with strong emphasis on the
health industry, tourism, education, light industry and services.
• A community that places significant value on education, the arts, and
culture.
Source: Charlotte County LTR Plan, December 2004.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 43
Chapter II
Step 7
Articulating a Vision
and Setting Goals
LTCR
Here are some research areas to consider:
• What community needs have already been identified (whether by community
members, government officials, or recovery professionals)?
• What kinds of goals have been proposed or pursued in the past? (Ask the official
in charge of public works, building inspectors, the tax assessor's office, other city
and county government officials, disaster recovery professionals, etc.)
•
Which goals/outcomes worked and which ones didn't? Why?
•
What can you learn from past mistakes/successes?
• What individuals or groups will have to be included in setting goals and
prioritizing specific projects?
Developing a LTCR program is largely a technical process. You need facts and objective
information to develop a framework for responsible decision-making and implementa-
tion. But developing a LTCR program is also very much a people process. And that inter-
personal/political dimension can sometimes be at odds with what appear to be the logi-
cal, technical aspects.
Drafting the Goals
Building a LTCR program is a complex
process and is affected by unpredictable
factors, such as community dynamics, politi-
cal pressures, even changes in the natural
environment. If your LTCR program had to
wait until everything was known and every-
thing was stable, you'd never get anywhere.
This can be a frustrating reality.
An important principle of LTCR is to draw
your best conclusions given the data on
hand at the moment, leaving your conclu-
sions open to further input down the line.
Planning certainly requires some structure;
but if the structure is too rigid, the plan has
a high likelihood of never being achieved.
You may need to adjust those goals as new
facts surface.
In terms of defining goals, here are some
questions to ask and consider:
• What kind of mitigation actions are
needed to make your community
more disaster-resistant in the future?
• What capacities are needed to make
your community more economically,
socially, and culturally vibrant?
• What must be built or created to
support your community's vision and
values?
ARTICULATING A VISION AND SETTING GOALS • STEP 7
Figure 6
Source: Escambia County LTR Plan, pg. 6
Example of Project Goal Statement
44 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 7
Articulating a Vision
and Setting Goals
LTCR
Here are some additional factors you may want to consider when drafting your goals:
• Define the goals in clearly measurable terms.
• Make sure the goals represent endpoints.
• Each goal is essentially a means to achieving the ultimate end, the
community's vision for growth. However, each goal also needs to be clearly
defined as an end in itself.
Goals should be framed in terms of end products that will be delivered within a specific
time frame. For example, you may know you want to improve the quality of your commu-
nity's housing, but in what specific ways and within what time frame? You may need to
upgrade aspects of your infrastructure, but what will that look like and when can it be
achieved? It isn't necessary at this stage to spell out how the work will be done. First you
just need to define your outcome as specifically as possible.
Evaluating the Goals
Once you've drafted a set of goals for your LTCR program, it will be important to establish
a process for evaluating them.
Following are some of the criteria you may want to consider:
• Do the goals clearly support the community's vision?
•
Whatever goals you specify, it will be important to show how they contribute
to achieving your community's long-term vision.
• Are the goals defined in terms that are measurable and concrete?
•
The clearer you can be, the more likely you can anticipate and address
disagreements among community stakeholders who, in the absence of
measurable outcomes, each have a different endpoint in mind.
• Are they framed in a way that is sufficiently inclusive of the variety of projects
that might be included under each goal or outcome area?
•
As you move to the step of selecting projects to include in your LTCR program,
you might find that some of the projects don't fit well under the goals as
they've been defined. That could be an indication that the project doesn't
support the overall Program objective or vision. But it might also mean that
the goal should be re-defined in a more inclusive or comprehensive way.
• Are they likely to inspire community, private sector, and government buy-in?
•
Goals are ways of concisely communicating how you will achieve your
community's vision for itself. So just as it is important to make those goals
clear and measurable, it is equally important that they are meaningful and
inspiring to your key stakeholders.
You can think of the evaluation process as another kind of feedback loop that helps you
refine your overall LTCR program as you move forward.
STEP 7 • ARTICULATING A VISION AND SETTING GOALS
A Case Study
VISION and GOAL SETTING - Stockton, Mo.
The town of Stockton, Mo., population 1,960, was struck by an F-4 tornado on May
4, 2003. The city experienced devastation to its business community (the entire
downtown was destroyed) and its housing stock.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 45
Chapter II
Step 7
Articulating a Vision
and Setting Goals
LTCR
ARTICULATING A VISION AND SETTING GOALS • STEP 7
Shortly after the tornado, the Stockton Recovery Focus Group (Focus Group) was
formed, comprised primarily of property owners in the downtown area, with the
goal of rebuilding the downtown. The questions facing the group centered on how,
what, and where to rebuild. Downtown Stockton impacted the entire community,
and the Focus Group identified downtown with the following characteristics:
• Heart of the community
• Created the community's sense of place
• Adjacent to city park and annual Black Walnut Festival
• Adjacent to county courthouse
• Informal community gathering place
• Intersection of two state highways
The Focus Group worked with volunteers from the Ozark Mountain Chapter of the
American Planning Association (APA) to initiate a visioning and goal-setting process
for the downtown area. It was immediately apparent to the members of the Focus
Group that a visioning and goal setting effort should not be limited to the down-
town area but should address the entire community and should involve the resi-
dents and property owners in Stockton.
The Focus Group brought in a few other stakeholders in the community for an ini-
tial meeting with the APA volunteers that lasted for approximately 5 hours and
brainstormed the following:
• Community Strengths
• Immediate Needs and Issues
• A Vision for Stockton's Future
• Opportunities
• Recommendations and Projects to Achieve the Vision
The APA volunteers recorded this information. The local newspaper and radio sta-
tion were contacted and agreed to get information out to the entire community. A
community meeting was scheduled a week later. Approximately 350 people
attended the community meeting and viewed presentation boards that were situ-
ated around the high school gym. These boards identified the results of the brain-
storming session with the Focus Group. Each person was provided colored dots to
identify their priorities/opinions regarding community strengths, immediate needs
and issues, etc. The APA volunteers engaged individuals in conversation, and wrote
down items that were not covered or identified in the brainstorming session.
The APA volunteers studied the information from the public meeting, prepared a
report that identified a Community Vision, key Community Issues, overall Goals for
Community Recovery, and potential Projects to address the Goals and lead toward
achieving the Community Vision. Another community meeting was held to present
this information and obtain feedback. Again, over 300 people attended.
A final report, Stockton, Mo.- A Plan for Action, was prepared and presented to the
Recovery Focus Group and the City of Stockton based on the community involve-
ment process. This report was also provided to the FEMA long-term community
recovery team that came to Stockton to prepare a LTCR plan and was used to refine
the recovery strategies that were ultimately set forth in the Recovery plan.
The initial Visioning and Goal Setting community effort set the stage for the LTCR
plan while both involving and energizing the community about its future.
46 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
STEP 7 • ARTICULATING A VISION AND SETTING GOALS
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 47
Chapter II
Step 8
LTCR
STEP 8:
IDENTIFYING, EVALUATING, AND PRIORITIZING THE LTCR
PROJECTS
What makes a good project?
Introduction
You've brought the community together to identify issues and establish a community
vision. You've reached out to local, state, and federal organizations and agencies to part-
ner in this recovery effort. Now it is time for the LTCR team to begin identifying the proj-
ects that will address the community
issues and vision. As projects are identi-
fied and developed, priorities will need
to be established and a recovery value
can be identified for each project. The
LTCR team will need to evaluate and pri-
oritize each project. Material in this sec-
tion can assist in determining the value
of each project with regard to the com-
munity's long-term recovery.
Identifying LTCR Projects
Projects will be identified as part of the
community involvement process, includ-
ing community meetings, discussions
with community leaders, organizations,
and agencies, and from existing plans for
the community. Collectively, the projects
identified should accomplish the vision
and goals identified during the LTCR
process. In addition, your LTCR team may
be formulating and assessing projects
that were overlooked during the com-
munity involvement but that could
address important post-disaster commu-
nity needs.
Public Assistance Projects
In addition to the projects identified
through the community involvement
process, it is important to work with the
FEMA Public Assistance (PA) staff to
understand what community projects
might be eligible for Public Assistance.
Public Assistance funding is available for
rebuilding, restoring, or repairing public
facilities that were damaged in a disaster.
Specific eligibility requirements are
spelled out in the FEMA Public
Assistance Guide, although there should
be an Infrastructure Branch Director
IDENTIFYING, EVALUATING AND PRIORITIZING THE LTCR PROJECTS • STEP 8
ALTERNATE PROJECTS
Occasionally an Applicant may deter-
mine that the public welfare would
not be best served by restoring a dam-
aged facility or its function to the pre-
disaster design. This usually occurs
when the service is no longer needed,
although the facility was still in use at
the time of the disaster. Under these
circumstances, the Applicant may
apply to FEMA to use the eligible
funds for an Alternate Project.
Possible alternate projects include:
• Repair or expansion of other
public facilities
• Construction of new public
facilities
• Purchase of capital
equipment
• Funding of hazard mitigation
measures in the area affected
by the disaster
All requests for alternate projects must
be made within 12 months of the
Kickoff Meeting and approved by
FEMA prior to construction. Alternate
projects are eligible for 75% of the
approved Federal share of the estimat-
ed eligible costs associated with
repairing the damaged facility to its
pre-disaster design, or the actual costs
of completing the alternate project,
whichever is less.
See: Public Assistance Policy Digest,
FEMA-321
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Projects
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managing PA activities throughout
the state and a Public Assistance
Coordinator (PAC) working directly
with your community. Contact the
PAC in your community to find out
what facilities are deemed eligible for
Public Assistance.You should be
aware of the following:
• Project Worksheet: used to
develop projects for Public
Assistance funding. Contains
description of the facility, scope
of eligible work, estimated cost,
etc.
• Improved Project: a Public
Assistance project that
incorporates improvements that
go beyond restoring the facility
to pre-disaster conditions
• Alternate Project: occurs when
the applicant chooses not to
restore a damaged facility and
requests the use of the PA funds
for other public facilities, capital
equipment, or hazard mitigation measures.
• 406 Mitigation: Public Assistance projects can incorporate cost-effective
mitigation measures that would reduce or eliminate the threat of future damage
to a facility damaged during the disaster.
Other federal agencies may also have projects that were underway or were in the plan-
ning phase prior to the disaster. Look at these projects in the same manner as you review
the Public Assistance projects.
• Are there federally funded projects that can contribute to community recovery?
• Is there a need to modify these projects as a result of the disaster?
• Are there new projects that might be undertaken in support of these projects?
HUD, EDA, and DOT projects can be especially supportive of community recovery efforts.
Was HUD planning to fund a number of housing units prior to the disaster? Is there an
application pending at EDA for infrastructure improvements for an industrial park? Does
the area or state Transportation Improvement Program identify projects that may support
recovery or is it necessary to propose amendments to the TIP to include or substitute proj-
ects that are now needed as a result of the disaster?
Projects should be related to the key recovery issues, goals, and overall community recov-
ery vision. You may want to consider the value of grouping projects that are related
and/or that create greater community benefit and value combined than when viewed
separately. Grouping projects in this manner may open up opportunities for funding that
you might not have if each project is assessed on its own.
STEP 8 • IDENTIFYING, EVALUATING AND PRIORITIZING THE LTCR PROJECTS
IMPROVED PROJECTS
Applicants performing restoration work
on a damaged facility may use the oppor-
tunity to make additional improvements
while still restoring the facility to its pre-
disaster design. For example, an
Applicant might propose laying asphalt
on a gravel road or replacing a firehouse
that originally had two bays with one that
has three. Projects that incorporate such
improvements are Improved Projects.
Federal funding for improved projects is
limited to the Federal share of the dam-
aged facility to its pre-disaster design.
The balance of the funds must come from
other sources. Funds to construct the
improved project can be combined with a
grant from another Federal agency.
See: Public Assistance Policy Digest,
FEMA-321
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 49
Chapter II
Step 8
Identifying,
Evaluating and
Prioritizing the LTCR
Projects
LTCR
Evaluating and Prioritizing Projects
The project identification process will result in the discovery of many valid projects. Yet
some of these projects may have competing priorities and/or implementation time limits.
How do you choose between such warranted projects as a hospital, a fire station, or a
public school? Decisions such as this could result in the fracturing of a community or a
delay in the recovery process. Instead, every project - large or small - must be evaluated
and prioritized for implementation. It is the responsibility of the LTCR team to evaluate
and prioritize the projects and eventually present these to the general public and policy
makers as part of the draft LTCR plan. Assigning a project recovery value is an important
element to be undertaken by the planning team as part of the evaluation and prioritiza-
tion process.
In the end, each identified project must satisfy two guiding principles:
• Does the project address the Vision and Goals of the Community as identified
through the community visioning process?
• Does the project focus on the overall Community Recovery?
If you identify projects based on community identified goals, use an overall community
perspective, and consider projects with overlapping benefits, you will create greater
opportunities for success during the recovery process.
Project Recovery Value
Experience in past FEMA LTCR initiatives has shown that projects identified during the
planning process have varying levels of impact on the recovery of a community. Projects
in these plans were assigned a "recovery value" based on their importance to the commu-
nity's recovery. Recovery Value is the designation assigned to a project that indicates
its ability to help jump-start a community's recovery from a natural disaster or inci-
dent of national significance. Projects that positively contribute to recovery typically
address a broad range of issues that promote a functioning and healthy economy, support
infrastructure optimization, and encourage provision of a full range of housing opportuni-
ties.
In past LTCR efforts, each project in a LTCR
plan was assigned one of three Recovery
Values: High, Moderate, and Low. A fourth
category, "Community Interest" is used to
designate projects that have significant
local support, but either cannot be imple-
mented in a time frame that will substan-
tively affect recovery or do not clearly pro-
mote any key disaster recovery goals.
The value attached to each project is based
on the degree to which it assists the com-
munity in its recovery from a disaster, and
is predicated on a series of general criteria.
A worksheet related to the following general criteria is included at the end of this section
to provide assistance as you assess the recovery value of your LTCR projects.
Post-Disaster Community Need: Post-Disaster Community Need varies depending upon
the magnitude of the event and the impact of damages affecting your community.
IDENTIFYING, EVALUATING AND PRIORITIZING THE LTCR PROJECTS • STEP 8
Figure 7
Recovery Value Diagram
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Projects
LTCR
Community Need projects are those that satisfy a previously identified need, leverage
other projects or funding sources, or have broad community support.
Project Feasibility: Can the project actually be achieved with available resources, within
regulatory and logistical constraints, and within a realistic time frame? Does it have suffi-
cient community support to get off the ground?
Project Sustainability: Sustainable development projects are those that can help pre-
vent acts of nature from becoming disasters. Sustainable development implies not only
disaster-resistance, such as relocating a structure or restricting new construction in partic-
ularly vulnerable areas, but also resource efficiency, or the prudent use of energy, water,
and natural resources to ensure healthy communities for future generations to come.
Crosscutting Benefits:
A project's Overall Cross-cutting Benefit is measured based on its:
• Economic Impact: Projects with significant economic impact can be defined as
those that create jobs, reestablish critical infrastructure that allow the economy to
function, and provide new economic opportunities for future generations.
• High Visibility and Builds Community Capacity: Ensuring a visible and
measured process of long-term community recovery can have a significant
impact on personal courage and community spirit during a time of extreme
stress and uncertainty.
• Linkages Throughout the Community and Leverages Other Projects &
Funding: If you develop a series of supportive projects, linked to other segments
within the community you will have a greater impact on recovery than individual
or stand-alone projects.
• Enhances the Quality of Life in the Community: Projects that improve the
quality of life can have a direct impact on the decisions that businesses and
people make regarding relocation.
High Recovery Value Project
Those projects assigned a high recovery value are catalyst projects that serve as important
building blocks for recovery. Typically, a High Recovery Value project will:
• Fill a post-disaster community need
• Provide leveraging and create linkages for other projects and funding
• Be related to the physical damage from the disaster
• Encourage private investment
• Have strong community support
• Have access to the resources needed to carry out the project
• Be realistic in its outcome - is achievable
• Avert future losses
• Use resources efficiently
• Have community-wide impact
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Chapter II
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Prioritizing the LTCR
Projects
LTCR
Moderate Recovery Value Project
Those projects assigned a moderate recovery value are projects that can be expected to
have clear and positive impact on recovery, but by their nature are limited in scope, span,
impact or benefits to less than community-wide significance and/or support. A moderate
recovery value project also will typically be related to the physical damage from the disas-
ter.
Low Recovery Value Project
Low Recovery Value projects either do not have a direct link to the disaster and its dam-
ages, lack public support, and/or provide few, if any, identifiable benefits to the communi-
ty related to disaster recovery. In many cases, a low recovery value project will fall far
short of the resources needed to carry out the project, may generate questions regarding
its achievability, and may only impact a small portion of the community. Community sup-
port for a project that has a low recovery value may
have support from a portion of the community but
lack general community support.
Community Interest Project
A Community Interest project may be extremely
important to a community even though it does not
have a significant recovery value. These projects
would normally be classified as low recovery value
except that they have significant public support.
Such projects may grow out of long-standing plans
IDENTIFYING, EVALUATING AND PRIORITIZING THE LTCR PROJECTS • STEP 8
LINKAGES
In addition to the linkages discussed in the text, two types of linkages should also
be considered:
• Linking with other Communities
• Linking Sectors
Other Communities
Working across community boundaries can often lead to a win-win situation where
two or more communities are better off through collaboration. For example, a new
facility (school, hospital, library) or a service (hotline, tutoring) might be designed to
serve several communities rather just one. This collaborative approach might make
possible progress that would otherwise be unaffordable and/or result in a high
level of quality.
Sectors
As the guide makes clear, the LTCR planning process should include multiple sec-
tors. It is important that synergies among sectors be sought out and included in
the program. For instance, a single new structure in a small town might house both
the library and a health clinic. This linkage or "wedding" of sectors might often be a
more effective use of limited resources. For example, developing a single strategy
to address both job creation and workforce training is likely to be more effective
than two separate strategies.
Community Interest Diagram
Figure 8
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that have never been implemented and the implementation of which will not necessarily
move the community on the road to recovery from a disaster. As mentioned earlier, a
community interest project may have significant local support, but either cannot be
implemented in a time frame that will substantively affect recovery, has no relationship to
the disaster, or does not produce identifiable benefits that promote recovery. An example
of a Community Interest Project might be a new community library structure even though
the existing, inadequate structure was not damaged in the disaster. Plans for a new library
may have been in place for some time, but the initiative and/or the resources did not
come together. The disaster may create an opportunity to move the project forward. The
project has significant support in the community and will replace an outmoded facility,
but it contributes little to the community's recovery from the disaster.
Scoring the Recovery Value of the Projects
The Project Recovery Value Checklist included in this section suggests questions you
might consider in determining the recovery value of your LTCR projects. The actual "scor-
ing" of the projects can be accomplished in several ways.
• You could assign a "1" for all "Yes" responses and a "0" for all "No" responses and
then determine what cumulative scores designate a High, Moderate, or Low
Recovery Value designation. For example, Projects that score a "1" on 2/3 of the
questions could be considered for High Recovery Value; Projects scoring a "1" on
between ½ and 1/3 of the questions could be considered for Moderate; Projects
scoring a "1" on 1/3 or less could be considered for Low.
• Responses to the questions could be scored with a 3, 2, or 1 representing High,
Moderate, or Low. The average score for the project could indicate a possible
recovery value; e.g., an average score of 2.5 or higher for High, 1.5 to 2.5 for
Moderate, and less than 1.5 for Low. (These ranges can vary. That is up to you
and your LTCR team.)
Regardless of how you might assign values to the scoring, the process should not be limit-
ed to the checklist and should not be completely formulaic. The LTCR team also should
incorporate their professional experience and community knowledge in arriving at a pro-
ject's recovery value. For example, a housing development project proposed for a neigh-
borhood adjacent to downtown may not score enough points to be designated a High
Recovery Value Project, but the LTCR team knows that the impact of the project on a
neighborhood and downtown that received extensive damage will be significant and
could generate other future projects. The LTCR team should identify such a project as
High Recovery Value.
Project Funding Priorities
The criteria for a high recovery value project are consistent with most funding priority cri-
teria. It is important to convey to the potential funding sources and the local community
the recovery value concept and the reasons for a project's designation. A clear explana-
tion of the recovery value concept and a brief summary of the key criteria addressed by a
particular project will assist both the funding agencies and the local community as funds
are sought to implement the projects.
Timing of Projects
Priority should be given to those projects that have the highest recovery value for a com-
munity. At the same time, it is important to have an immediate success with a project. In
some instances, a high recovery value project may not be the first project undertaken, or
at least completed, due to funding availability, complexity, etc. A community may want to
STEP 8 • IDENTIFYING, EVALUATING AND PRIORITIZING THE LTCR PROJECTS
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 53
Chapter II
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Evaluating and
Prioritizing the LTCR
Projects
LTCR
complete a project that has high visibility and strong community support but a moderate
or community interest recovery value in order to have an immediate success and sustain
the community interest and support for LTCR.
Summary
Projects that contribute to community recovery typically address a broad range of issues
that create a functioning and healthy economy, address infrastructure improvements,
expand housing development, address environmental considerations, and revitalize down-
towns. Each project must be assessed and prioritized based on the criteria described
above and then assigned a Recovery Value based on how well it meets this criteria.
Priority should be given to those projects that have the highest recovery value for a com-
munity or can be accomplished quickly to demonstrate success.
It is important to convey to the potential funding partners and the local community the
recovery value concept and the reasons for a project's designation. A clear explanation of
the recovery value concept and a brief summary of the key criteria addressed by a partic-
ular project will assist both the funding agencies and the local community as funds are
sought to implement the projects.
IDENTIFYING, EVALUATING AND PRIORITIZING THE LTCR PROJECTS • STEP 8
54 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
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Prioritizing the LTCR
Projects
LTCR
Project Recovery Value Worksheet
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LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 55
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Projects
LTCR
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56 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
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Projects
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Projects
LTCR
IDENTIFYING, EVALUATING AND PRIORITIZING THE LTCR PROJECTS • STEP 8
CASE STUDY
Historic Waterfront Development and Revitalization - Pensacola, FL
Hurricane Ivan caused significant damage to the Pensacola waterfront and down-
town area in the fall of 2004. Several weeks after the hurricane, a proposal was pre-
sented to the city to develop a tract of land that was owned by the city and located
on the waterfront, immediately adjacent to downtown. This proposal, on property
known as the Trillium property and eventually titled Maritime Park, had been under-
way for some time prior to the hurricane but wasn't completed and made public
until after the disaster. Key components of the proposal included a Maritime
Museum and research center in partnership with the University of West Florida, a
multi-use sports stadium, waterfront access, parking garage, linear park, a confer-
ence center, and office development. Funding for the project required a public/pri-
vate partnership with a little less than half coming from the private sector, including
donations and the University of West Florida, and a little more than half coming
from the public sector.
The FEMA LTCR team identified this as a potential LTCR project and received posi-
tive responses from citizens and local governments. In an attempt to create a more
significant impact and foster projects that were linked in an overall recovery strate-
gy, the LTCR team analyzed Public Assistance Projects in the area and undertook
field surveys of the entire waterfront and downtown area.
Several Public Assistance projects were identified along the waterfront and in fairly
close proximity to the proposed Maritime Park project. These included:
• Sanders Beach Community Center and Park
• Port of Pensacola
• Palafox Pier/Bayfront Park
• Main Street Wastewater Treatment Plant
These were all public facilities that had been damaged in the hurricane and/or spe-
cific redevelopment plans were underway.
Port of Pensacola
Bayfront Park
Maritime Park
(Trillium Property)
Downtown
Main Street
Wastewater
Seafood District
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STEP 8 • IDENTIFYING, EVALUATING AND PRIORITIZING THE LTCR PROJECTS
Linking the Maritime Park development with projects that were either planned and
funded or would be receiving Public Assistance funds for restoration created an
overall recovery strategy for the waterfront area. In addition, several other potential
projects were identified through field work and the community involvement
process.
• Revitalization of the Seafood District - located within a ¼ mile of the
Maritime Park proposal, this area received significant damage from the
hurricane. Potential to increase access to local market to sell local seafood
produce and other related goods directly to local consumers and tourists.
• Develop Housing Downtown - development of residential lofts, high-rise
dwellings, apartments, etc., had been a goal of the city for several years.
• Streetscape Improvements to better link downtown elements to the
waterfront
• Civic Center/Convention Center Expansion - located on the edge of
downtown, plans were in place for expansion of this facility
• Expansion of Saenger Theater - located in downtown Pensacola, this
historic facility attracted people to the downtown for performances,
providing consumers not only for the arts groups but for the downtown
restaurants and retail
All of these projects were individually discussed and supported by community
groups and/or citizenry within the community. All projects also received support
from the attendees as individual projects at the first community meeting. These
individual projects were linked together as the Historic Waterfront Development and
Revitalization Strategy for the Draft LTCR plan and presented and discussed at the
second community meeting. There was significant public support expressed for this
strategy and the concept of linking these projects as an overall recovery initiative.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 59
Chapter II
Step 9
LTCR
STEP 9:
DEVELOPING A RECOVERY PLAN
How do we put it all together?
Who Authors the Plan?
The LTCR plan should be authored by the team of professionals conducting the LTCR
process in your community - your Team.
What is the LTCR Planning Process?
LTCR is an intensive planning process that establishes a blueprint for community recovery
after a disaster event. The length of time for your planning process will depend on your
resources and the amount of damage sustained. The LTCR planning process must be kept
to a tight time frame with perceptible results to avoid public disillusionment with recov-
ery efforts and to take advantage of the sense of community that usually follows a disas-
ter. Although the process for completion of a LTCR plan is undertaken within a relatively
short time frame, it is important to recognize that planning is an ongoing process and
implementation of the projects contained in the plan may take years. The following pro-
vides a general framework for the LTCR team assigned to carry out the process. Keep in
mind that the LTCR process should be adapted to meet the needs of your community:
• Issue Identification / Visioning - begins immediately and is on going
throughout LTCR. Team members meet with residents, community groups, local
government officials, and stakeholders. Members of the public are encouraged to
visit the LTCR office to discuss their ideas, receive information, and provide
comments.
• 1st Community Meeting - to be conducted approximately 10 days to 2 weeks
into the process to solicit ideas and input on the community vision and define
the issues for recovery. It is recommended that this meeting use an open house
format to encourage maximum participation by attendees. Community meetings
are best scheduled at the beginning of the
LTCR process to ensure availability of
space, sufficient public notification, and
public confidence in planning schedule.
Meeting facilitators should ask questions
such as: What are your community's
strengths? Weaknesses? What are the
issues? How should we rebuild? What do
you want your community to look like in
the next 20 years? What kind of
community do you want for your
children? (See step 4 for techniques to
generate community interest and
attendance.)
• Draft LTCR Plan - to be completed approximately 4 weeks into the process. The
LTCR team will devise a plan based on the community's input and ideas. While
the team should use its professional judgment when devising projects, it should
also make certain that each project identified in the plan is based on a public
concern or idea.
• Distribution of Draft LTCR Plan - due to the compressed time frame of the LTCR
planning process, the draft plan may not be completed until the 2nd community
meeting, but it should be available for distribution at that meeting. If it is
DEVELOPING A RECOVERY PLAN • STEP 9
60 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 9
Developing a
Recovery Plan
LTCR
completed prior to the meeting, it should be distributed to the public and
agencies prior to second community meeting for review.
• 2nd Community Meeting - to be conducted approximately 6 weeks into the
process to solicit community feedback on the draft plan. The plan will be updated
to capture relevant community feedback from this meeting.
• Final Draft LTCR Plan - to be completed approximately 7 to 8 weeks into the
process. Projects will be fine-tuned, changed, or cut, based on feedback from the
2nd community meeting.The plan remains a Final Draft because it is intended to
be constantly evolving.
• Public Commemoration - Unveiling of the final draft LTCR plan occurs at this
final public meeting. While the public is invited to attend this meeting, it is
typically a smaller gathering held at a local government building where the LTCR
plan is formally handed over to the local officials who will oversee
implementation.
• Distribution of Final Draft LTCR Plan / Other Materials - the final draft plan can
be posted on websites for mass review after the final community meeting. Other
materials, such as posters, calendars, or other creative materials that keep the
projects in front of the community should be distributed at this time as well.
• Implementation - the final draft plan will be the guiding document for
implementation. Refer to Step 12 on Implementation.
STEP 9 • DEVELOPING A RECOVERY PLAN
EXAMPLE OF FIRST COMMUNITY MEETING (FROM RECENT
LTCR EFFORTS)
A typical First Community Meeting is usually held within a couple of weeks of the
start of the LTCR process and is set up in an open house format. The LTCR team has
compiled a list of issues and concerns generated by the various individuals and
community groups that have been interviewed and from existing plan documents
and studies. These issues and concerns are grouped in appropriate categories; e.g.,
Economic Development, Transportation, Housing, etc.
A series of presentation boards are prepared for each grouping and set up on
easels around the meeting room. These boards indicate the issues and concerns
that the LTCR team has been able to identify from discussions with individuals,
groups, and elected officials within the first two weeks. Typically, these are phrased
to represent the way it was presented; e.g., "We should tear down the old court-
house and use the land for parking in the downtown." OR "Housing is needed for
the low and moderate-income families that lost their homes in the tornado, but it
should be distributed throughout the community rather than located in one area."
Post-It Notes and pencils are provided at each station, and the citizens are encour-
aged to post their comments regarding any or all of the issues/concerns on the
boards. LTCR team members are available at each station to answer questions and,
in some cases, transcribe the citizen's comments on a post-it note and place it on
the board.
This process allows for interaction and communication among the citizens, between
the citizens and the LTCR team, and provides an opportunity for the citizens to state
their opinion on the issues/concerns identified or to point out issues/concerns that
have not been identified.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 61
Chapter II
Step 9
Developing a
Recovery Plan
LTCR
DEVELOPING A RECOVERY PLAN • STEP 9
WEEK 1 WEEK 2 WEEK 3 WEEK 4 WEEK 5 WEEK 6 WEEK 7 WEEK 8 WEEK 9
WEEK 1 WEEK 2 WEEK 3 WEEK 4 WEEK 5 WEEK 6 WEEK 7 WEEK 8 WEEK 9
LTCR GENERALIZED TIME LINE
Actions and Steps
Initiate
LTCR
Choose
Leader
Assemble
Planning
Team
Set Dates for
Community Meeting
Public Information & Public Relations Campaign
Meet with Community Leaders, Agencies, Organizations, Citizen Groups, Etc.
(Identify Issues, Needs, Problems, Possible Projects, Feedback on Draft, Etc.)
Secure Outside Support
(Coordinate with appropriate agencies and organizations at Regional, State, and Federal level)
Community
Meeting 1
Publish
Mtg. Results
Articulate a VISION
Secure Buy-In
Choose Project Champions
Funding Strategy
Draft Plan Document
Evaluate and Prioritize LTCR Projects
Distibute Plan
Community
Meeting 2
Publish
Mtg. Results
Finalize Plan Document
Present Plan
Distibute Plan
Implement Plan
Update the Plan
Figure 9
62 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 9
Developing a
Recovery Plan
LTCR
LTCR Plan Design
A LTCR plan is not your typical planning document. While the intention of the plan is to
outline a path to recovery, it also will be used to market your community projects to gov-
ernment agencies, non-profit groups, or private-sector investors with funding capabilities.
Therefore, the format of the plan should be designed to assist communities to prioritize
projects for future implementation. Grant applications vary from agency to agency, but
typically require proof of community support, identification of project need, a description
of the project, and cost estimates of the project. Therefore, these elements should be suc-
cinctly folded into the LTCR plan in a user-friendly format.
A compact disc containing examples of past LTCR plans is included with this guide. These
are intended as examples only and are not meant to indicate the specific content or for-
mat of your plan.
To respect agency review burdens, the LTCR plan should be brief, with succinct discussion
of project needs but not an in-depth discussion of existing conditions. Where there is a
need for additional project information, reference rather than summarize or attach it.The
following provides an overview of the general plan design:
1. Professional Cover - Keep graphic quality high and compel reviewers to check
out the community's vision for itself with an exciting cover; however, make sure
the cover adequately conveys the contents of the plan.
2. Table of Contents
3. Introduction - Provide a brief introduction to the LTCR plan (approximately one
page). Keep the opening page focused on the positive aspects of rebuilding the
community and include a prominent spot for the community's Vision.
STEP 9 • DEVELOPING A RECOVERY PLAN
TYPICAL SECOND COMMUNITY MEETING (FROM RECENT
LTCR EFFORTS)
The Second Community Meeting is conducted in an open house format and is held
after a rough draft of the plan has been completed - usually within 6 weeks of initi-
ating the LTCR process. Boards are again used to group by subject area the project
recommendations contained in the draft plan. Specific projects are recommended
and are aimed at addressing the key issues and concerns, the community vision, and
the goals developed within each of the subject areas.
A series of presentation boards are prepared for each grouping and set up on easels
around the meeting room as was done in the First Community Meeting. These
boards contain the project options along with any sketches, background informa-
tion, etc., related to that project.
Post-It Notes and pencils are again provided at each station, and the citizens are
encouraged to post their comments regarding any or all of the projects. LTCR team
members are available at each station to answer questions.
This process provides input on the various projects and allows the LTCR team to
hear the community's perspective on the recommended projects, which assists in
refining and revising the projects. In some cases, new projects come forward that
had not been discussed previously.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 63
Chapter II
Step 9
Developing a
Recovery Plan
LTCR
4. Supporting Parties (Final Draft only) - This section of the plan should clearly
identify the political and community support for projects identified in the LTCR
plan. The more public support demonstrated in your plan, the more weight it will
receive with funding agencies and organizations. Document your collaborative
process with letters of support from the appropriate decision makers in the
upfront section of the plan.
5. Review of Community Feedback (Final Draft only) - The LTCR community
meetings and public outreach efforts should be documented in this section,
along with the feedback from the Draft LTCR plan. The reviewers of the plan
should understand which projects received the strongest and weakest public
support relative to the project's recovery value (refer to Step 8 for further
information on recovery value.) This will provide decision makers with critical
public input necessary to implement projects in the future.
6. Projects - As a rule of thumb, approximately one page should be devoted to the
description of each project in order to keep the plan brief. Each project sheet
should be set-up to function like a grant application by addressing the following
elements:
• Recovery Value - Identifies the value of a project to the recovery of the
community.
• Goal - Identifies the recovery goal of the project. Reference existing plans or
policies that also state this goal where appropriate.
• General Project Description - Brief description of the general project or
planning strategies necessary to fulfill recovery goal.
• Project Options - Several project options should be devised for each project in
order to ensure that good projects are not derailed simply because the
approach to it lacks consensus. For example, the community may agree that
the downtown needs rebuilding. Providing several strategies for its
reconstruction will help guide the community to think about how to do it
rather than disagreeing over one given method.
DEVELOPING A RECOVERY PLAN • STEP 9
Source: Charlotte County LTR Plan, pg. 9
Example of Project Page
64 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 9
Developing a
Recovery Plan
LTCR
• Graphic representation of project / project options
• Estimated Cost of Project Options - In order for agencies to make funding
decisions on grants, they must understand the estimated project cost. Costs
can be roughly calculated based on documented industry assumptions.
Creative Materials - Keeping the LTCR Plan Alive
In past LTCR planning processes, vivid and creative summaries of the LTCR planning proj-
ects have been provided to interested members of the public to keep the plan "in the
public eye." For example, after hurricanes Charlie, Francis, Jeanne, and Ivan hit Florida in
2004, the LTCR teams developed large colorful posters of key projects that were posted in
local officials' offices, restaurants, public displays, and residents' homes to ensure that the
plan remained active and evolving. An abbreviated version of the LTCR vision and projects
can be captured on such mediums as calendars, placemats, or other creative formats and
given to public officials for office display to help keep the LTCR plan and project imple-
mentation alive.
STEP 9 • DEVELOPING A RECOVERY PLAN
Case Study
Experiences of a LTCR Team Leader
A strong and credible LTCR team leader is an important ingredient in ensuring a
successful recovery process and well developed plan. The following question and
answer series with Fred May, 2004-2005 LTCR team leader for Port Charlotte and
Escambia Counties, Florida after Hurricanes Charlie and Ivan, highlight challenges of
the process.
Southwest Florida LTR Plans and Presentation Materials
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 65
Chapter II
Step 9
Developing a
Recovery Plan
LTCR
DEVELOPING A RECOVERY PLAN • STEP 9
What do you feel is a challenging component of LTCR?
"Making sure that you touch base with all the key actors in the community and that
you've identified all the key issues. The very first week, you need to identify all the
government officials and private sector individuals that are the movers and shakers
in town and start meeting with them. The team needs to branch out, target these
stakeholders, and listen to them to find out what the issues are - LISTEN, not talk.
Explain what you are doing, but let them tell you what the issues are. This is really
important to developing the right projects later on."
What did you find helpful when managing a LTCR team?
"It's important to understand the strengths of the team members and let them
focus in those areas. For example, if someone has a background in historic preserva-
tion, let them get in touch with the appropriate locals for that information. At the
same time, make sure that all team members understand the big picture of recovery
planning and how it all comes together. Maybe the historic preservation issues for
that community do not lend themselves to the recovery of that community. The
team members need to keep that in mind also."
How do you interact with the community?
"The most interesting and rewarding aspect of LTCR was the interaction with the
general community, primarily at the open house but also at community gatherings.
When you are focused on putting together a plan in a short period of time, you
need to connect with the community as quickly as possible. I found that if I wanted
the public to come to our meetings, our team needed to get involved in theirs. We
were invited to planning commission meetings, Rotary Club, church gatherings, and
barbeques.While we were at these functions, we continued to listen and try and
empathize with their situations and capture their perspective on the community's
needs and issues following the disaster."
Did your plan achieve community consensus?
"For the most part, I felt like the plans developed in Port Charlotte and Escambia
Counties achieved community consensus. The projects that were contained in the
plan had a general consensus in the community. Certainly there were some people
that had other projects that they were interested in, but they did not create a big
stir. The key here is to work closely with the community in development of the
plan."
What was the key for keeping the planning process brief?
"The need to undertake the planning process and produce a LTCR plan in a relative-
ly short time frame is extremely important. You need to take advantage of the
cooperative attitudes within communities immediately following a disaster and you
need to get projects and proposals to potential funding agencies while their atten-
tion is focused on your area. We were forced to keep to an 8 to 10 week timeline
because we scheduled the community meetings up front and had to be prepared
for them. The meetings were already advertised publicly so the team understood
that those deadlines were critical. That's probably the best way to avoid 'analysis
paralysis.' We made a commitment to the community to finish the recovery plan-
ning in this time frame and we scheduled ourselves into it."
66 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
STEP 9 • DEVELOPING A RECOVERY PLAN
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 67
Chapter II
Step 10
LTCR
STEP 10: CHOOSING PROJECT CHAMPIONS
Who will provide leadership for each project?
Choosing a champion is an important step in the process of LTCR planning. A project
champion is someone who will take the project and move it forward to realize the plan's
goals and community vision. A good choice for a champion is someone who has shown
past interest in the project and may have even started working on the project prior to the
disaster. A project champion can be an individual or an agency, although one person
should be the designated contact if it is an agency or organization.
What Constitutes a Good Champion?
A good champion will understand the needs of the project and will not pursue inefficient
courses of action. They will have a clear understanding of the politics that it could take to
get the project started and to keep it going. They will be familiar with and able to work
with the appropriate entities to accomplish the project. A good champion will also have
support within the community - from politicians and general public alike.
Where Do You Find Project Champions?
Project champions can be found in a variety of places and it is up to the LTCR team and
local government to help identify them. They may be an elected official (such as the town
Mayor), or a local volunteer (such as the head of the local historical society). An active or
influential member of a local community organization also can make a good champion,
especially on projects that the organization was trying to accomplish prior to the disaster.
Other champions can be municipal employees, community activists, or members of local
professional organizations. Be open to
the opportunity to identify champions
from non-traditional sectors within the
community depending on the types of
projects and the overall damage. Non-
traditional champions might come from
the rural portion of the community,
neighborhood associations or the arts
community, etc.
A champion for a particular project
should not be selected without consider-
ation for the other projects identified
during the LTCR planning process. A
good champion for one project may be a
good choice for several other projects;
however choosing one person or organi-
zation to champion too many projects
may dilute time and energy, reducing
their ability to implement each project.
There are other, less obvious types of
potential champions who may be identi-
fied during the course of the long-term
community recovery planning effort.
During the numerous public meetings
held as part of the process, champions
may identify themselves by speaking
CHOOSING PROJECT CHAMPIONS • STEP 10
AN OBVIOUS CHOICE FOR A
HOUSING CHAMPION
Rebuild NW Florida was formed short-
ly after Hurricane Ivan devastated
Escambia and Santa Rosa Counties.
The focus of this not-for-profit group
was to solicit donations, volunteers,
and manage the rehabilitation of
owner-occupied housing units that
were damaged in the hurricane.
Rebuild NW Florida had already
amassed a significant number of cash
and material donations by the time
the LTCR team began their work. The
group was focused on both Escambia
and Santa Rosa Counties and was
headed by a former Speaker of the
House of the Florida Legislature. This
organization was an obvious choice as
a champion for a significant portion of
the housing projects that came out of
the LTCR process in both Escambia
and Santa Rosa Counties.
68 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 10
Choosing a Project
Champion
LTCR
passionately about a particular project or subject matter, or by bringing a new project to
the attention of the team. This person may be a good candidate for a champion or he/she
may help identify a potential champion.
Champions also can be identified through more focused public meetings with local
organizations, public officials, and other interest groups. Connecting with local entrepre-
neurs or prominent members of the community is a good way to identify potential candi-
dates. Entrepreneurs and prominent citizens are generally business people who have
many connections with both residents and local politicians. They may make good cham-
pions themselves, especially if the project may lead to increased business opportunities.
Project champions may not be identified immediately. Some projects might not have a
champion until the implementation process begins; however, you should strive to identify
a project champion as early as possible in the development of the LTCR projects.
The Role of a Champion
A crucial step in selecting a project champion is
defining their role. A good champion will:
1. Continue to flesh out the details of the
project after it has gone into the LTCR plan
2. Find ways to attract funding to the project
3. Convince others to join in and help bring
the project to fruition
4. Serve as project coordinator/leader
5. Work with the the person(s) responsible
for LTCR implementation to help achieve all of the goals of the project.
Once a good candidate is identified, it is important to engage him or her in the project.
They must buy-in to the project or they will not carry it forward. There are several ways to
achieve this, and these methods are best if used in tandem.
1. Get the champion involved in shaping the project. A good champion will already
have an interest in the project, but they will maintain that interest if allowed to
help outline the details.
2. Involve the champion in the public meetings. Focused meetings, held to discuss
only the project in question, will provide input to shape the project and assist the
planning team and the champion to identify others who may share an interest in
the project. Allowing the champion to be identified as such during these
meetings will add a sense of permanency to their role and further encourage
their commitment.
3. Connect the champion with potential funding sources for the project. Making
these connections will strengthen the project and help the champion realize that
the project is feasible. It will also provide the funding source with an opportunity
to watch the project take shape and observe the public support for the project.
STEP 10 • CHOOSING PROJECT CHAMPIONS
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 69
Chapter II
Step 10
Choosing a Project
Champion
LTCR
CHOOSING PROJECT CHAMPIONS • STEP 10
Case Study
THE ZOO Northwest Florida, Gulf Breeze, FL
As part of the LTCR planning process in the Panhandle area of Florida, the LTCR team
in Santa Rosa County held several public meetings in multiple towns to obtain pub-
lic input on key issues within the communities.
At one of the smaller meetings, LTCR team members stood by individual boards that
addressed different issue areas. One particular attendee went from board to board,
discussing with each team member the issues that she felt were key. The issue that
was most important to her was damage that occurred to the local zoo where she
worked. The zoo had sustained damage to several enclosures and faced the chal-
lenge of lost revenue, loss of infrastructure, and increased animal care cost due to
injuries and other special needs brought on by the storm. Damages and lost rev-
enue were estimated at $1.1 million.
By the time the woman, Natalie Akin, Director of Visitor Services and Business
Operations at the Gulf Breeze Zoo, had talked to every team member in the room, it
was clear that she was a great choice to champion a project addressing the recovery
of the zoo. The zoo brought tourism revenue to the area (with an annual atten-
dance of 150,000) and provided 100 jobs for local residents. Overall, the zoo had an
economic impact of $6.5 million on the Northwest Florida economy. The zoo had
completed a Comprehensive Master Plan that included $3-5 million in capital
improvements, but there was no funding to implement the plan.
Akin gave tours of the facility to the LTCR team and worked with them to help
develop the scope of the project. She arranged meetings with the zoo staff who
created the master plan and worked with FEMA's Public Assistance to try to deter-
mine whether the zoo was eligible for funding as a qualified non-profit. Together,
Akin and FEMA identified several potential projects, one of which was to construct
two emergency shelters-one with generators that could be used by zoo workers to
manage animals during a storm and one that could be divided and used to shelter
zoo animals and domestic animals.
During all of the public outreach
that the team did as part of the
long-term community recovery
process, no one mentioned the
issues that the zoo faced. If it
were not for the determination of
this person to raise awareness for
the situation, and the public
meeting process that the long-
term community recovery team
organized, the project might not
have been identified.
70 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
STEP 10 • CHOOSING PROJECT CHAMPIONS
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 71
Chapter II
Step 11
LTCR
STEP 11:
PREPARING A LTCR FUNDING STRATEGY
Where do we get the funding for these projects?
Introduction
Communities must seek support and interest from agencies and organizations willing to
invest in a project, a community, and a process. Since most available funding through
agencies and organizations is competitive, it is imperative that communities distinguish
themselves and their respective projects from among other projects competing for the
same funding resources.
Partnerships
Establishing partnerships with the various state, federal, and not-for-profit agencies is the
most important aspect of preparing a funding strategy. Typically, the initial focus of a
community is to "find the money" to fund recovery projects. While this is a natural first
reaction, it is also limited in the long-term effectiveness of recovery and project imple-
mentation. Communities will be more effective and garner greater support over a longer
duration if they first develop relationships with potential partnership (and funding) agen-
cies. This relationship allows the community to fully understand the policies, timelines,
limitations, and parameters of the partnering agency. It also allows the community to
communicate and "sell" the project and the scope of redevelopment to the partnering
agency.
This 'partnership' approach encourages an agency to become a vested partner in the
development of projects. While it may seem slow and tedious at first, especially with the
sense of urgency in the recovery process, this relationship building will create a long-term
partnership between communities and agencies that can endure long after community
recovery has been accomplished.
In developing a successful partnership, the community recognizes its true needs as well as
limitations; and the partnering agency recognizes that project assistance is a request for a
"hand-up" not a "hand-out."
Funding Sources
As you identify and develop recovery projects, you should also consider the resources
available to support these projects. A good starting point in identifying possible funding
sources for projects is Disaster Assistance - A Guide to Federal Recovery Programs, (FEMA Pub.
229).
You should first look at what local resources or funding opportunities are available to
assist in implementing recovery projects. Are there funding opportunities from the com-
munity's General Fund? From potential Bond Issues? From a Capital Improvement Fund,
etc.? To encourage stakeholders, a community must demonstrate its commitment and
active participation in the project. Once this review has occurred you can investigate fund-
ing, technical assistance, or other resources from various sources, including:
1. Public Agencies (Local, State, Federal)
2. Not-For-Profit Organizations
3. Private Foundations
4. Other organizations or entities
PREPARING A LTCR FUNDING STRATEGY • STEP 11
72 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 11
Preparing a LTCR
Funding Strategy
LTCR
One path for communities to access state and federal resources is through established
programs at the state and federal level, such as HUD Community Development Block
Grants (CDBG), EPA, EDA, USDA Rural Development, U.S. Department of Transportation
(USDOT), related state departments and agencies, etc. Other state and federal programs
that aren't as popular or as well funded may require additional research to find resources
applicable for a particular project.
Remember to incorporate eligible Public Assistance funds as part of your funding pack-
age. PA funds may be available for both Improved and Alternate projects if those types of
projects are recommended in the LTCR plan.
Hazard Mitigation can be a key component of your LTCR strategy, and there are several
funding sources for implementing hazard mitigation techniques and projects. These
include the Section 404 Hazard Mitigation Grant Program, Section 406 Hazard Mitigation
Program associated with the FEMA public assistance program, Pre-Disaster Mitigation
Program, Flood Mitigation Assistance and the National Flood Insurance Program all
described in detail on pages 74 and 75.
Besides established agencies and organizations, communities should work with their state
and federal congressional delegations for support of recovery projects. Establishing a
project partnership with the state and federal legislative representatives and their staffs
will allow stakeholder support - in the form of written support for grants or through the
identification of state or federal resources and programs available to a community. Some
communities may receive direct earmarks or appropriations for specific recovery projects.
Usually, direct project appropriations are a result of preparing detailed project back-
ground information, distinguishing gaps in funding or resources, and identifying a specific
need based on exhaustion of other means to develop a project. In addition, direct appro-
priations require extensive documentation and usually require extended time frame
based on the state or federal legislative and budgeting process.
It should be noted that in some instances, agencies might allow waivers of certain pro-
gram criteria or allow creative financing solutions depending on the type or scope of a
disaster. Since these waivers or exceptions occur on case-by-case or event basis, commu-
nities should be prepared to seek out these waivers or exceptions.
Regardless of the type or quantity of resources considered for a project, it is important to
identify all of the potential resources, programs and stakeholders that may be applicable
STEP 11 • PREPARING A LTCR FUNDING STRATEGY
LTCR
Public Agencies
Non-Profit Agencies
Other Organizations
Private Foundations
$
$
$
$
$
$
$
$
Figure 10
Conceptual Funding Source Diagram
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 73
Chapter II
Step 11
Preparing a LTCR
Funding Strategy
LTCR
for use in the recovery process. You may want to compile a list or matrix of agencies or
organizations and their respective programs and resources. In some instances regional,
state or federal agencies have compiled and published guides or financial assistance man-
uals. For example, the Florida League of Cities publishes a guide entitled Financial and
Technical Assistance for Florida Municipalities and FEMA publishes Disaster Assistance:
A Guide to Recovery Programs. These types of documents provide basic information
about the respective programs of assistance available. Check with your respective state
planning agency, Regional Planning Commission, state Municipal League, or state
Association of Counties.
Not-For-Profit Agencies and Private Foundations are also good resources for project collabo-
ration and partnerships. The Trust For Public Land, Habitat for Humanity, and a local/regional
Community Foundation are examples of resources for project partnerships. In addition,
public or private Colleges or Universities can be a valuable resource for a project.
Depending on the project, timing, and location, these organizations can provide technical
assistance, project management, funding, and in some cases assume the role of developer
or project lead.
Funding Strategies
When considering the funding aspect of a project, there are two important strategies to
consider.
1. A community must be able to locate the available resources and
2. Apply those resources in a logical manner to a project.
Make sure the funding program or resource matches the recovery project. Be prepared to
make adjustments to the project scope, scale, timing or phasing in order to ensure access
to available resources.
Leveraging
Ideally communities should seek several levels or sources of funding to leverage project
development. Using several layers of resources insulates projects from potential pitfalls
and encourages more stakeholder participation. On the other hand you must recognize
that the leveraging of multiple resources requires additional project oversight and coordi-
nation to ensure success.
A Funding Package
In the end, each project consists of various elements that create a complete package.
Preparing a funding package consists of three important steps.
1. The community must look at the project and its scale and scope to determine how
the project could be logically divided into phases. While it should not be the intent
to develop a project that requires phasing, it is important for a community to look
at a project from this perspective.This approach will allow the flexibility to develop
portions of projects where total funding or resources may not yet exist or be
available.
2. You must look internally to determine if any funds are available through existing
revenue streams or through new or potential sources of local revenue. This second
step is crucial - as it ensures the community is committed to invest in its own
project. This step also demonstrates to outside agencies that the community is
willing to become a primary stakeholder in the redevelopment and recovery
process.
PREPARING A LTCR FUNDING STRATEGY • STEP 11
74 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 11
Preparing a LTCR
Funding Strategy
LTCR
3. Finally, a community should evaluate the funding programs and resources
available at the regional, state, and federal levels that will allow the leveraging of
local funds to complete a given project. Focus on existing or standard state and
federal programs as your first choice. Don't rely on special appropriations from
state or federal agencies that may or may not come to fruition. These resources
may not always consist of actual cash investment. In reality there are numerous
opportunities where in-kind services or technical assistance may provide a
comparable level of support.
Summary
The success of a project is in large part based on the funding and resources available for
the project. It should be emphasized that the best funding to pursue is from standard
programs rather than hoping for special appropriations from the state or federal govern-
ment. Ensuring that the community is vested and committed to the recovery projects is
the first step in developing a solid funding strategy. Developing partnerships at the local,
state and federal levels encourages stakeholder participation in community recovery.
These partners become supporters for the recovery process and create opportunities for
leveraging resources. By matching the project with the proper resources and programs,
you will be successful in the recovery process.
STEP 11 • PREPARING A LTCR FUNDING STRATEGY
SECTION 404 HAZARD MITIGATION (HMGP)
Authorized under Section 404 of the Robert T. Stafford Disaster Relief and
Emergency Assistance Act, the Hazard Mitigation Grant Program (HMGP) admin-
istered by the Federal Emergency Management Agency (FEMA) provides grants
to States and local governments to implement long-term hazard mitigation
measures after a major disaster declaration. The purpose of the program is to
reduce the loss of life and property due to natural disasters and to enable miti-
gation measures to be implemented during immediate recovery from a disaster.
Applicants who have questions regarding the HMGP should contact the State
Hazard Mitigation Officer.
SECTION 406 HAZARD MITIGATION
Implemented through the Public Assistance (PA) Program, Hazard Mitigation
Section 406, is a funding source for cost-effective measures that would reduce or
eliminate the threat of future damage to a public facility/structures damaged
during the disaster. The measures must apply only to the damaged elements of
a facility/structures rather than to other, undamaged parts of the facility/struc-
tures or to the entire system. Section 406 mitigation measures are considered
part of the total eligible cost of repair, restoration, reconstruction, or replace-
ment.They are limited to measures of permanent work.
It is important to note that Section 406 hazard mitigation measures consist of
work that is above and beyond the work required to return a damaged
facility/structure to its pre-disaster design. Upgrades that would be required to
meet current codes and standards, however, are not considered hazard mitiga-
tion measures for purposes of the PA Program and have different eligibility crite-
ria.The projects should be considered eligible, technically feasible, environmen-
tally and historically compliant and cost effective.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 75
Chapter II
Step 11
Preparing a LTCR
Funding Strategy
LTCR
PREPARING A LTCR FUNDING STRATEGY • STEP 11
NATIONAL FLOOD INSURANCE PROGRAM
The Mitigation Division of FEMA manages the National Flood Insurance Program
(NFIP).The three components of the Program are: Flood Insurance, Floodplain
Management, and Flood Hazard Mapping. Buildings constructed in compliance
with NFIP building standards suffer approximately 80 percent less damage annually
than those not built in compliance. And, every $3 paid in flood insurance claims
saves $1 in disaster assistance payments. (www.fema.gov/nfip/whonfip.shtm)
The National Flood Insurance Program's (NFIP) Community Rating System (CRS) is a
voluntary incentive program that recognizes and encourages community floodplain
management activities that exceed the minimum NFIP requirements.
(www.fema.gov/nfip/crs.shtm)
If your home or business is damaged by a flood, you may be required to meet cer-
tain building requirements in your community to reduce future flood damage
before you repair or rebuild.To help you cover the costs of meeting those require-
ments, the National Flood Insurance Program (NFIP) includes Increased Cost of
Compliance (ICC) coverage for all new and renewed Standard Flood Insurance
Policies. (www.fema.gov/nfip/icc.shtm)
PRE-DISASTER MITIGATION
The Pre-Disaster Mitigation (PDM) program was authorized by §203 of the Stafford
Act. Funding for the program is provided through the National Pre-Disaster
Mitigation Fund to assist States and local governments (to include Indian Tribal gov-
ernments) in implementing cost-effective hazard mitigation activities that comple-
ment a comprehensive mitigation program. The PDM program will provide funds to
states, territories, Indian tribal governments, and communities for hazard mitigation
planning and the implementation of mitigation projects prior to a disaster event.
PDM grants are to be awarded on a competitive basis and without reference to state
allocations, quotas, or other formula-based allocation of funds.
(www.fema.gov/fima/pdm.shtm)
FLOOD MITIGATION ASSISTANCE (FMA)
FMA was created as part of the National Flood Insurance Reform Act (NFIRA) of 1994
(42 U.S.C. 4101) with the goal of reducing or eliminating claims under NFIP. Funding
for the program is provided through the National Flood Insurance Fund, and FMA is
funded at $20 million nationally. FMA provides funding to assist States and commu-
nities in implementing measures to reduce or eliminate the long-term risk of flood
damage to buildings, manufactured homes, and other structures insurable under
the National Flood Insurance Program (NFIP). (www.fema.gov/fima/fma.shtm)
76 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 11
Preparing a LTCR
Funding Strategy
LTCR
STEP 11 • PREPARING A LTCR FUNDING STRATEGY
Case Study
Southwest Florida Disaster Recovery Workshops (Resource Day)
As part of the recovery process in Florida, the state's Department of Community
Affairs hosted a series of Disaster Recovery Workshops throughout the state. These
workshops were designed to allow communities throughout Florida to meet, net-
work, and seek outside input and support on their respective recovery projects.
In Southwest Florida, the Disaster Recovery Workshop was scheduled 10 months
after Hurricane Charley. While this time frame may appear lengthy, it allowed the
local communities to fully grasp project priorities, establish timelines, and determine
which projects needed additional resources to allow completion or implementation.
The Disaster Recovery Workshop was organized as a one-day meeting among proj-
ect stakeholders and partnering agencies to identify and discuss the various com-
munity recovery projects in detail. The intent of the workshops was two-fold:
• Provide project stakeholders with a better understanding of the regulatory
processes and organizational make-up of various state, federal and other
agencies; and
• Provide state, federal and other resource agencies further information on
specific community recovery projects, which would encourage them to
become partners in the recovery process by providing organizational,
regulatory, technical, financial assistance for these community recovery
projects.
This "Resource Day" concept provided an informal forum for communities and
resource agencies to discuss opportunities, programs, and resources while gathered
together.
Throughout the event, communities and project stakeholders presented their proj-
ects and then received feedback or input from various agencies. In some instances,
several agencies suggested opportunities to leverage projects among several part-
ners or adjustments to streamline the regulatory process.
At the end of the workshop, local project stakeholders left with additional details
and insight on available technical and financial resources. While the workshop did
not result in any completed projects, additional contacts were made and new part-
nerships were formed with various agencies.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 77
Chapter II
Step 12
LTCR
STEP 12:
IMPLEMENTING THE PLAN
How do we make it all happen?
The LTCR plan is a product of the LTCR program, but the end products of the program are
the completed projects that are set forth in the plan. Implementation of the LTCR plan is
the key to long-term community recovery. Without the follow-through by public and pri-
vate sectors, the LTCR plan is merely a report with interesting ideas and pretty pictures.
Who is in Charge of Implementation?
The governing body of the area for which a LTCR program has been initiated should coor-
dinate the LTCR plan implementation. The local governing body has the responsibility to
both initiate and implement the plan. Some of the projects may require public dollars
and action, some projects may require private dollars and actions, and some may require a
public/private partnership to implement; however, the key to implementation is the sup-
port and commitment of the local elected officials.
LTCR Implementation Manager
Just as the overall LTCR program requires a leader, the implementation process needs
someone to manage and lead the implementation. That may be the LTCR program leader
or it may be someone else who has the skills to manage multiple activities and inspire the
project champions to see their projects to completion. A good choice for an implementa-
tion manager might be a paid staff person within the local government organization or a
paid staff person within a community organization/agency, such as the Chamber of
Commerce, local Development Corporation, etc.
The implementation manager should be given an appropriate time frame to jump-start
the implementation process - at least until the project champions and the projects have
enough momentum to move forward to project completion. The amount of time will
depend on the overall damage to the community and the complexity of the LTCR plan.
That may be 3 months in some cases or 18 months or longer in others. Keys to continued
success include 1) regular project completions, 2) maintaining a fluid plan, 3) including
portions of the plan in capital improvement projects of the community or in community
comprehensive/master plans.
Priorities for Implementation
Project implementation priorities should be based on two general principles:
• Focus on projects that will have the most impact on the community's recovery
when completed. Obviously the High Recovery Value projects should have
priority. These should get the major focus of the implementation manager and
the local governing body.
• Move forward on projects that can be completed rather quickly, have significant
public support, and available funding. These would be the "low hanging fruit" of
the LTCR plan. Completion of these types of projects creates significant visibility
for the LTCR program and helps solidify community and political support for
continued emphasis on plan implementation. In many cases, these may not have
a high recovery value, but their completion will help hold the community's
interest in the LTCR program.
IMPLEMENTING THE PLAN • STEP 12
78 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 12
Implementing the
Plan
LTCR
Be Flexible
The LTCR plan should be viewed as a guide, not a set of specific instructions. Specifics of
the projects in the plan may change and evolve as designs are undertaken or as more
details become known. It is important that the community is flexible and assesses
changes based on the community's recovery vision and the overall goals of the plan.
Evaluation and feedback are key components of the LTCR planning process. In addition to
helping to improve the overall effort, progress that is evaluated and tracked can be used
to communicate success to stakeholders and the general public.
STEP 12 • IMPLEMENTING THE PLAN
Case Study
Hardee County Recovery Efforts
As part of the response to the damage sustained from the 2004 Hurricanes, a few
communities in Southwest Florida appointed staff specifically dedicated to manage
and coordinate the recovery efforts for the local government.
Hardee County, FL was one example where community officials wanted to ensure
that implementation of the long-term community recovery plan was properly man-
aged. Immediately after the disaster, the County Administrator recognized the need
for a dedicated staff member to coordinate the long-term and economic recovery
efforts of the County and its three municipalities. What makes this situation distinc-
tive is that the County did not seek outside assistance to fill the local recovery man-
ager position. Instead, the Hardee County Board of County Commissioners, with the
full urging and support of the County Administrator authorized the creation of a new
"project manager" position within the Planning Department. This project manager
position was intended to support community economic recovery and provide a coor-
dinated local effort with local, state, and federal officials.
New office space was created, and a Planning Department employee was assigned to
the position of project manager. After FEMA placed an interim recovery team in
Southwest Florida, this staff member became the point person for long-term com-
munity recovery, public assistance, and project implementation between Hardee
County, its three municipalities, FEMA and the other state and federal agencies
involved in the recovery process. The County also made an effort to reach beyond its
own jurisdictional boundaries. The County project manager provided staffing and
recovery support for all three municipalities within the County, seamlessly integrat-
ing community recovery into the local government organizational framework.
The efforts by the County to create a primary contact for state and federal coordina-
tion from within it's own organization was extremely important. With the knowl-
edge, awareness and ownership of community issues, this person provided a consis-
tent and knowledgeable contact for agency coordination during a chaotic period of
activity. This organizational structure streamlined the coordination process at the
local level and afforded the County a project manager with the ability to make deci-
sions or ensure that information was directed to the appropriate County or City enti-
ty so that decisions were made in a timely and efficient manner.
The community had the leadership and foresight to control the recovery process at
the local level and create a position to ensure an opportunity for success in commu-
nity recovery. While the County faced challenges and opportunities along this road
to recovery, they were in control of their destiny and ensured the recovery efforts
would benefit the community.
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 79
Chapter II
Step 13
LTCR
STEP 13:
UPDATING THE PLAN:
When are we finished?
Introduction
Your LTCR plan should be viewed as a 'living' document that adjusts and changes to spe-
cific needs as the community works through the recovery process. The LTCR plan is an
action-oriented planning tool to guide the implementation of recovery projects identified
by the community. The plan is not an ordinance, law, or comprehensive/master plan, but
more like a strategic blueprint for community recovery and should be used as a decision-
making tool for community resources, funding, and priorities.
Stages of the Plan
The development of a long-term community recovery plan occurs through a collaboration
of the local community - its citizens and leaders - partnering with state and federal agen-
cies to develop and assemble a 'tool' to assist the community in the recovery process.
Through this effort projects are identified and prioritized for implementation.
Once complete, the plan is presented to and adopted by the local community as a guide for
recovery. Upon adoption of the plan, the implementation of projects begins. This 'begin-
ning' cannot be overstated.
While the plan has identified projects for implementation, they are still in a conceptual
framework, far from a complete project ready for construction or legislative approval. At
this point, each project must still go through further planning, design, or analysis before it
may proceed. In addition, each project must assemble the resources and secure the nec-
essary funding as well as legislative approval before action.
It is at this stage that the projects and the plan evolve. Some high priority projects come
to fruition and yet other equally important projects stall due to gaps in funding or
resources or both. Some projects become too complex or cumbersome to implement as
originally envisioned and evolve into alternative projects. In other cases new sources of
funding materialize and jumpstart projects that have been idle. This ebb and flow of proj-
ect status is typical in the life cycle of the recovery plan and continues throughout the
implementation and recovery process.
Continued Community Involvement
Once a community's citizens participate in the development of a LTCR plan, they become
a vested partner. This partnership must be continually nurtured throughout the imple-
mentation process. A community’s citizens must regularly observe progress. Progress
may manifest itself in a variety of forms, but it should be visible to the overall community,
such as public meetings, project presentations, press releases, legislative actions, ground-
breaking, etc. As projects evolve and change due to resources or regulations, it is even
more important that the community is kept informed of the project changes and the
implementation progress.
Regardless of the issue or the stage of the project, keeping the community involved and
informed will earn the respect of the community and allow continual support during
recovery.
UPDATING THE PLAN • STEP 13
80 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
Chapter II
Step 13
Updating the Plan
LTCR
Changes and Modifications
One key aspect of a LTCR plan is that it must accommodate and allow flexibility for
changes in priorities or circumstances that generally occur during the recovery process.
Local governments and its leaders must be aware of and prepared for changes in plan or
project priorities. Communities should not fear modifications, alterations or deviations
from the plan. Instead they should be prepared to make adjustments as needed through-
out the process. Instead, accept it as a normal course of the redevelopment and recovery
process.
Communities should allow for flexibility and prepare for changes and modifications to the
recovery process - all the while keeping the community citizens involved and informed.
Plan Updates
You will need to evaluate your LTCR plan on a regular basis to ensure that the community
is following the appropriate path toward recovery. In the first year following the disaster,
an evaluation of the plan and the implementation process might occur on a monthly
basis. This evaluation may consist of regular status reports or presentations to community
leaders and policy makers.
After the first year and through year five (depending on the severity of the disaster), the
progress of the LTCR plan implementation should be summarized in a quarterly, semi-
annual, or annual report and presented to the community. This report should identify the
status of the implementation process, noted plan modifications, project challenges, and
new implementation priorities for the coming year.
Summary
Routine evaluations of the LTCR plan and the implementation process will allow commu-
nities to accommodate necessary changes and modifications while striving to fully
achieve and implement the plan. View the LTCR plan as a guide, not a static document,
that will be modified and revised as situations change and/or resources are identified.
STEP 13 • UPDATING THE PLAN
Case Study
Charlotte County Event Center (Memorial Auditorium)
The Charlotte County Event Center project is an example of how projects continual-
ly evolve during the recovery implementation process.
The Memorial Auditorium was located near the Charlotte Harbor waterfront, a focal
point as you enter the City of Punta Gorda, FL. The Auditorium met its ultimate
demise, sustaining severe damage from the wrath of Hurricane Charley.
Before the disaster, the 19,000 square feet Memorial Auditorium played host to a
wide variety of community events. The facility was nearing the end of its effective-
ness as community center, due to facility inefficiencies and the need for larger more
efficient community multi-purpose space. Hurricane Charley ensured the communi-
ty would receive a new multi-purpose events facility, but the disaster also raised
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 81
Chapter II
Step 13
Updating the Plan
LTCR
UPDATING THE PLAN • STEP 13
many questions - What would the new facility look like? How big will it be? Who will it
serve? When will it reopen? How much will it cost?
As a result of community visioning, the long-term community recovery (LTCR) plan iden-
tified several options to redevelop the Auditorium - now known as the "Events Center."
While Charlotte County proceeded to develop a strategy to fund and rebuild a new mul-
tipurpose facility, it also recognized a need to provide a temporary facility to host com-
munity events and functions until a new facility was completed.
As an interim measure, the County worked with FEMA to develop a project worksheet
for a temporary structure. This interim measure would allow construction of a tempo-
rary 20,000 square feet hard-sided tent. This was a key step in the community's econom-
ic recovery and provided desperately needed meeting space for the near term.
Concurrently, the County considered the various options for the redevelopment of a per-
manent multipurpose facility. These options included relocating the facility directly on
the waterfront; relocating the facility in conjunction with another community facility
elsewhere in the community; increasing the size and scope of the facility to create addi-
tional convention and meeting space; and creating a public-private partnership to devel-
op a hotel in conjunction with a redeveloped convention center.
Almost immediately the public-private partnership concept, which included develop-
ment of an adjoining hotel, was removed from consideration. Subsequently, a private
developer proposed and received City approval to redevelop a $72 million, 5-story, 204-
unit condo-hotel complex on the property adjoining the proposed Event Center. Even
as the project design evolved differently from one of the original concepts, new oppor-
tunities were presented to the City and County. These adjustments helped continue the
vision for economic recovery and redevelopment.
Other challenges arose as well. Since the property was originally deeded by the City of
Punta Gorda to Charlotte County with use restrictions, both entities had to collaborate
on the project to include design options, funding allocation, and permitting issues.
Collaboration as well as tension between both jurisdictions was common during the
early stages of the project. Still, both entities continued to seek the best solution for the
community.
Ultimately, Charlotte County approved funding for a $12.7 million "Event Center." The
design-build project was funded as follows:
• $2.1 million - FEMA Public Assistance (PA)
• $2.6 million - County Insurance
• $3.0 million - County Sales Tax (2002)
• $5.0 million - County Capital Projects Fund (2005)
A stakeholders group was eventually formed to provide support for the project and to
provide guidance and feedback on the design details as the project proceeds toward
implementation.
The County faced many challenges on this project - site design issues; community
expectations; development timetable; financing and funding resources; interagency col-
laboration. Despite these challenges, the community will be successful in its recovery
process because it has maintained the overall project vision, while responding to modifi-
cations, adjustments, and the evolution to both the process and the project.
82 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
STEP 13 • UPDATING THE PLAN
Chapter III
WHERE DO WE GO
FROM HERE?
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LTCR
WHERE DO WE GO FROM HERE?
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LTCR
WHERE DO WE GO FROM HERE?
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 85
Chapter III
LTCR
WHERE DO WE GO FROM HERE?
III. WHERE DO WE GO FROM HERE?
LTCR requires consistent commitment to an evolving process of focus, leadership, and
development.Taking a plan from concept to completion demands partnerships on all
fronts: local, state, federal, and private. Involving household partnerships improves the sus-
tainability of the process because LTCR becomes a household conversation and a commu-
nity-building venture.When LTCR becomes successful it retains the top-down, bottom-up
energy of a community. The top-down includes the government involvement in the
growth of a recovery process.The bottom-up includes learning that recovery means self-
reliance and survival that achieves more than the disaster removed.
You have the resources and capacity to carry out a LTCR program, and while this guide
identifies steps, techniques, and strategies that have been used successfully in past LTCR
efforts, you will want to use the guide as it might pertain to your community, your dam-
age from the disaster, and your local resources.
No community wants the damage associated with a major disaster, but you have the abili-
ty to take advantage of opportunities available to your community as a result of the disas-
ter. The LTCR process can be of significant benefit in making aspects of your community
better than they were prior to the disaster. Implementing a LTCR planning process pro-
vides an opportunity for the entire community to participate in setting forth a future
vision. The end result can be a vibrant, post-disaster community that is more resistant to
future disasters.
Chapter II
86 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
WHERE DO WE GO FROM HERE?
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 A - 1
APPENDIX
LTCR
APPENDIX
A - 2 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
APPENDIX
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 A - 3
LTCR
APPENDIX
RESOURCES
The following information includes various resources, publications and web links that may
be of assistance to communities during the long-term community recovery (LTCR) plan-
ning process.
FEDERAL AGENCY WEB SITES
FEDERAL EMERGENCY MANAGEMENT AGENCY (FEMA). FEMA is organized to lead the
effort to prepare the nation for all hazards and effectively manage federal response and
recovery efforts following any national incident.Within FEMA, there are several Divisions,
Sections, and Programs that provide assistance during the LTCR process. (For more infor-
mation, see http://www.fema.gov)
INDIVIDUAL ASSISTANCE (IA) - Individual Assistance programs assist people
and businesses following a disaster and help them get back on their feet. (For
more information, see http://www.fema.gov/rrr/inassist.shtm)
LONG-TERM COMMUNITY RECOVERY (LTCR) - Long-term community recovery
is the process of establishing a community based, post-disaster vision, identifying
projects and project funding strategies best suited to achieve that vision, while
employing a mechanism to implement those projects.The community, the
damages sustained, the issues identified, and the community's post-disaster
vision for the future shape the focus of each community long-term recovery
program. (For more information, see http://www.fema.gov/rrr/ltcr)
MITIGATION - The Mitigation Division manages the National Flood Insurance
Program and oversees FEMA's mitigation programs. It has of a number of
programs and activities of which provide citizens Protection, with flood
insurance; Prevention, with mitigation measures and Partnerships, with
communities throughout the country. (For more information, see
http://www.fema.gov/fima)
PUBLIC ASSISTANCE (PA) - The Public Assistance Program provides
supplemental federal disaster grant assistance to help state and local
governments and certain private non-profit organizations rebuild. FEMA's Public
Assistance Grant Program is one way federal assistance gets to the state and local
governments and to certain private nonprofit organizations.These grants allow
them to respond to disasters, to recover from their impact and to mitigate impact
from future disasters.While these grants are aimed at governments and
organizations -- their final goal is to help a community and all its citizens recover
from devastating natural disasters. (For more information, see
http://www.fema.gov/rrr/pa)
REGIONS - FEMA has ten regional offices. Each region serves several states, and
regional staff work directly with the states to help plan for disasters, develop
mitigation programs, and meet needs when major disasters occur. (For more
information, see http://www.fema.gov/regions)
PROGRAMS - FEMA offers many programs to assist individuals and communities
in preparation for and following a disaster, including the following programs:
· Flood Insurance Program. The Mitigation Division of FEMA manages the
National Flood Insurance Program (NFIP).The three components of the
program are: Flood Insurance, Floodplain Management, and Flood Hazard
Mapping. Buildings constructed in compliance with NFIP building standards
suffer approximately 80 percent less damage annually than those not built in
Appendix
List of Resources
A - 4 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
APPENDIX
LTCR
compliance. And, every $3 paid in flood insurance claims saves $1 in disaster
assistance payments. (For more information, see
http://www.fema.gov/nfip/whonfip.shtm)
The National Flood Insurance Program's (NFIP) Community Rating System
(CRS) is a voluntary incentive program that recognizes and encourages
community floodplain management activities that exceed the minimum NFIP
requirements. (For more information, see http://www.fema.gov/nfip/crs.shtm)
If your home or business is damaged by a flood, you may be required to meet
certain building requirements in your community to reduce future flood
damage before you repair or rebuild.To help you cover the costs of meeting
those requirements, the National Flood Insurance Program (NFIP) includes
Increased Cost of Compliance (ICC) coverage for all new and renewed
Standard Flood Insurance Policies. (For more information,see
http://www.fema.gov/nfip/icc.shtm)
· Flood Mitigation Assistance (FMA). FMA was created as part of the
National Flood Insurance Reform Act (NFIRA) of 1994 (42 U.S.C. 4101) with the
goal of reducing or eliminating claims under NFIP. Funding for the program is
provided through the National Flood Insurance Fund, and FMA is funded at
$20 million nationally. FMA provides funding to assist States and
communities in implementing measures to reduce or eliminate the long-term
risk of flood damage to buildings, manufactured homes, and other structures
insurable under the National Flood Insurance Program (NFIP). (For more
information, see http://www.fema.gov/fima/fma.shtm)
· Hazard Mitigation Grant Program (HMGP). Authorized under Section 404
of the Robert T. Stafford Disaster Relief and Emergency Assistance Act, the
Hazard Mitigation Grant Program (HMGP) administered by the Federal
Emergency Management Agency (FEMA) provides grants to States and local
governments to implement long-term hazard mitigation measures after a
major disaster declaration.The purpose of the program is to reduce the loss of
life and property due to natural disasters and to enable mitigation measures
to be implemented during the immediate recovery from a disaster. (For more
information, see Http://www.fema.gov/fima/mitgrant.shtm)
· Pre-Disaster Mitigation (PDM) Grant Program.The Pre-Disaster Mitigation
(PDM) program was authorized by §203 of the Stafford Act. Funding for the
program is provided through the National Pre-Disaster Mitigation Fund to
assist States and local governments (to include Indian Tribal governments) in
implementing cost-effective hazard mitigation activities that complement a
comprehensive mitigation program. The PDM program will provide funds to
states, territories, Indian tribal governments,and communities for hazard
mitigation planning and the implementation of mitigation projects prior to a
disaster event. PDM grants are to be awarded on a competitive basis and
without reference to state allocations, quotas, or other formula-based
allocation of funds. (For more information, see
http://www.fema.gov/fima/pdm.shtm)
ECONOMIC DEVELOPMENT ADMINISTRATION (EDA). The Economic Development
Administration (EDA) helps distressed communities address problems associated with
long-term economic distress, as well as sudden and severe economic dislocations includ-
ing recovering from the economic impacts of natural disasters, the closure of military
installations and other Federal facilities, changing trade patterns, and the depletion of nat-
ural resources. (For more information, see http://www.fema.gov/fima/pdm.shtm)
Appendix
List of Resources
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 A - 5
ENVIRONMENTAL PROTECTION AGENCY (EPA). The U.S. Environmental Protection
Agency (EPA) was established to protect human health and the environment. EPA leads
the nation's environmental science, research, education and assessment efforts. (For more
information, see http://www.epa.gov)
DEPARTMENT OF AGRICULTURE (USDA). The U.S. Department of Agriculture houses
two agencies that may assist some disaster-stricken communities.
The National Resources Conservation Service (NRCS) provides planning assistance for
watershed protection projects, water quality improvement projects, wetland preservation,
and management for agricultural and rural communities. (For further information, see
http://www.nrcs.usda.gov).
The Rural Development (RD) agency of USDA helps rural areas to develop and grow by
offering Federal assistance that improves quality of life. Rural Development provides
financial programs to support essential public facilities and services as water and sewer
systems, housing, health clinics, emergency service facilities and electric and telephone
service. Rural Development also promotes economic development by providing loans to
businesses through banks and community-managed lending pools, while also assisting
communities to participate in community empowerment programs. (For further informa-
tion, see http://www.rurdev.usda.gov)
DEPARTMENT OF ENERGY The U.S. Department of Energy (DOE) Technical Assistance
Program provides services to communities for the revitalization of single-family, multi-
family, and commercial buildings. For further information, see
http://www.energy.gov/engine/content.do
Another DOE program, the Department's Center for Excellence for Sustainable
Development, works with communities to help them define and implement sustainable
development strategies as part of their comprehensive community planning efforts. (For
more information, see http://www.sustainable.doe.gov).
DEPARTMENT OF TRANSPORTATION (DOT). The U.S. Department of Transportation's
Federal Highway Administration (FHWA) oversees a special fund, known as
Transportation Enhancement Funding, used to encourage States to dedicate trans-
portation money to projects that enhance local communities. (For more information, see
http://www.fhwa.dot.gov/safetealu/index.htm. Other web links include, http://www.trans-
act.org, and http://www.enhancements.org)
HOUSING AND URBAN DEVELOPMENT (HUD). Community Development Block Grants
(CDBG) are administered by State community development agencies and local govern-
ments on the behalf of the U.S. Department of Housing and Urban Development (HUD) to
provide decent housing and a suitable living environment, principally for low-to-moder-
ate-income individuals. CDBG activities may include the acquisition, rehabilitation, and
reconstruction of disaster-damaged properties and the redevelopment of disaster-affect-
ed neighborhoods. (For additional information, see the following websites -
http://www.hud.gov, http://www.hud.gov/offices/cpd/communitydevelopment/pro-
grams/index.cfm?state=nm, or http://www.huduser.org/periodicals/rrr/cdbg.html).
NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION (NOAA) - Within NOAA,
the Office of Ocean and Coastal Resource Management (OCRM) is responsible for admin-
istering the Coastal Zone Management Act and a leader on the Nation's coastal, estuarine
and ocean management issues. (For more information, see http://www.noaa.gov or
http://www.ocrm.nos.noaa.gov)
Appendix
List of Resources
LTCR
APPENDIX
A - 6 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
SMALL BUSINESS ADMINISTRATION (SBA) - The Small Business Administration (SBA)
provides low-interest disaster assistance loans for the repair or replacement of a primary
residence; household and personal property; and for business owners and non-profit
organizations for the repair, rehabilitation, or replacement of property. (For further infor-
mation, see http://www.sba.gov/index.html or
http://www.sba.gov/disaster_recov/index.html)
OTHER WEB SITES
American Planning Association (APA) - http://www.planning.org
American Institute of Architects (AIA) - http://www.aia.org
American Society of Landscape Architects (ASLA) - http://www.asla.org
International City Managers Association (ICMA) - http://www.icma.org
Urban Land Institute (ULI) - http://www.uli.org
PUBLICATIONS
FEMA PUBLICATIONS
FEMA maintains a Virtual Library and Electronic Reading Room on its website
(www.fema.gov/library). Some of the files are provided in Adobe Acrobat Portable
Document Format (PDF). Printed copies of many of the resources listed in the FEMA
Library are available in the FEMA Publication Distribution Center. Call 1-800-480-2520 for
ordering information.
Disaster Assistance - A Guide to Federal Recovery Programs, (FEMA Pub. 229)
P
ublic Assistance Polic
y Digest, (FEMA Pub. 321)
P
ublic Assistance Guide, (FEMA Pub. 322)
Public Assistance Applicant Handbook, (FEMA Pub. 323)
P
lanning for Post-Disaster Recovery and Reconstruction, Chapters 3, 4, and 5,
(http://www.fema.gov/rrr/ltcr/plan_resource.shtm)
STATE AND LOCAL MITIGATION PLANNING HOW-TO GUIDES
(www.fema.gov/fima/resources.shtm)
Getting Started (FEMA Pub. 386-1)
U
nderstanding Your Risks (FEMA Pub. 386-2)
Developing the Mitigation Plan, (FEMA Pub. 386-3)
B
ringing the Plan to Life, (FEMA Pub. 386-4)
Integrating Historic Property and Cultural Resource Considerations Into Hazard
Mitigation Planning, (FEMA Pub. 386-6)
Integrating Manmade Hazards Into Mitigation Planning, (FEMA Pub. 386-7)
APPENDIX
Appendix
List of Resources
LTCR
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 A - 7
OTHER PUBLICATIONS
Holistic Disaster Recovery: Ideas for Building Local Sustainability after a Natural
Disaster. Natural Hazards Research and Application Information Denver, University of
Colorado. (http://www.colorado.edu/hazards/holistic_recovery)
Local Community Foundations
(http://www.cof.org/Locator/index.cfm?menuContainerID=34&crumb=2)
Planning for Post-Disaster Recovery and Reconstruction. Planning Advisory Service
Report Number 483/484, American Planning Association, December 1998.
(http://www.planning.org)
Profiles of America, Economic Research Service (ERS) provides county-level data, includ-
ing maps and tables, on population, education, employment, income, and the business
sector. (http://www.ers.usda.gov/Data/ProfilesOfAmerica)
State Fact Sheets, Economic Research Service (ERS) provides information on population,
employment, income, farm characteristics, and farm financial indicators for each state in
the United States. (http://www.ers.usda.gov/StateFacts/WV.HTM)
FUNDING AND GRANT RESOURCES
The Catalog of Domestic Federal Assistance: Developing and Writing Grant
Proposals. (For additional information, see
http://12.46.245.173/pls/portal30/CATALOG.GRANT_PROPOSAL_DYN.show)
The Foundation Center: Proposal Writing Short Course. (For additional information, see
http://www.fdncenter.org/learn/shortcourse/prop1.html)
The Grant Seeker's Guide to the Galaxy. This guide is a compendium of funding
resources from the Community Development Program in USDA. (For additional informa-
tion, see
http://www.ezec.gov/Fundseekers%20Guide%20to%20the%20Galaxy/TheGrantSeeker.ht
m)
A Guide to Proposal Planning and Writing - (For additional information, see
http://www.wm.edu/grants/PROP/miner.pdf or http://
www.wm.edu/grants/PROP/propasst.html)
Guide to Funding Resources. The Rural Information Center at the National Agricultural
Library provides an overview of the process for applying for federal funding and funding
from private sources. (For additional information, see
http://www.nal.usda.gov/ric/ricpubs/funding/fundguide.html)
Information for Seeking Foundation & Corporate Grants: Although geared towards
Michigan, this complimentary publication provides information, useful tips and tech-
niques for searching, applying and obtaining grants. (For additional information, see
http://www.cmif.org/documents/infoforseeking2005.pdf)
Appendix
List of Resources
LTCR
APPENDIX
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APPENDIX
LTCR
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 A - 9
LTCR
Appendix
LTCR Planning
Process Checklist
APPENDIX
LTCR PLANNING PROCESS CHECKLIST
1. Assessing the Need
a. Extent/type of damages sustained by geographic areas
b. Identify the potential long-term impacts of these damages
c. What do we need if we don't undertake LTCR?
d. Determine Housing Sector Need
i. Quantity
ii. Quality
iii. Type
iv. Location
e. Determine Economic Sector Need
f. Infrastructure/Environment Need
g. Conduct S.W.O.T. Analysis
2. Selecting a Leader and Outlining a LTCR Program
a. Select Leader
b. Establish a Planning Team
c. Establish a Time Frame
3. Securing Outside Support
a. County or Adjacent Counties
b. MPO
c. RPC
d. State Agencies
e. Federal Agencies
f. Adjacent Communities
g. Professional Organizations
h. Educational Institutions
i. Private Sector
j. Non-Profits
k. Establish coordination Mechanism(s)
4. Establishing a Public Information Campaign
a. Appoint Public Information Person
b. Establish contacts with all local media
i. Newspaper(s)
ii. Radio Station(s)
iii. TV station(s)
c. Contacts with Groups/Organizations
i. LTCR Team
A - 10 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
APPENDIX
Appendix
LTCR Planning
Process Checklist
ii. Mass Retailers
iii. School System
iv. Chambers of Commerce
v. Volunteers
vi. Faith-based groups
d. Communication Mediums
i. Newspaper
ii. Radio
iii. TV
iv. Faxes/e-mails
v. Mailing list
vi. Flyers
vii. Internet
viii.Open house at office
ix. Newsletters
x. Reach out to minority groups
xi. Information to low-income areas
5. Reaching Consensus
a. Mapping Network of Stakeholders
i. General public
ii. Private sector
iii. Government
iv. Other groups
b. Work with Media
c. Address Conflicts
6. Identifying LTCR Issues
a. Meetings to Identify Issues
i. Local government leaders
1. Elected officials
2. Management officials
ii. Groups, organizations, agencies
b. Rethinking community vision
c. Improvements to pre-disaster conditions
d. New opportunities identified
e. Listing of all issue
f. Conduct Public Meeting
g. Publish public comments
7. Articulating a Vision and Setting Goals
a. Set forth vision statement
b. Getting all facts/building support
c. Draft goals
LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS • A SELF-HELP GUIDE • DECEMBER 2005 A - 11
LTCR
Appendix
LTCR Planning
Process Checklist
APPENDIX
d. Evaluate goals
i. General public
ii. Government
iii. Outside support
iv. LTCR Planning Team
8. Identifying, Evaluating, and Prioritizing LTCR Projects
a. Identify Projects
i. Projects proposed by FEMA and other agencies
1. Public Assistance projects
2. Mitigation projects
3. Other federal agencies
a. EDA
b. DOT
c. Etc.
ii. Projects aimed at addressing Issues & Achieving Vision
iii. Evaluate Projects
iv. Opportunity to link projects
v. Assign Recovery Value
vi. Identify priorities
9. Developing a LTCR Plan
a. Identify issues
b. First community meeting
c. Publish comments from first meeting
d. Prepare Draft Plan
e. Distribute Draft
f. Solicit comments on draft
i. Public meeting
ii. Individual/group meetings
iii. Local government
iv. State and federal partners
v. Other
g. Publish comments
h. Prepare Final Draft
i. Present Final Draft to local government
j. Other creative materials to keep plan "alive"
10. Choosing Project Champions
a. Champion for each project
b. Solicit comments suggestions
A - 12 DECEMBER 2005 • A SELF-HELP GUIDE • LONG-TERM COMMUNITY RECOVERY PLANNING PROCESS
LTCR
APPENDIX
Appendix
LTCR Planning
Process Checklist
11. Preparing a LTCR Funding Strategy
a. Review funding sources
i. Public Agencies (Local, State, Federal)
ii. Not-For-Profit Organizations
iii. Private Foundations
iv. Other organizations or entities
v. Public assistance project funding
vi. Hazard mitigation project funding
b. Opportunity to Leverage
c. Funding package for each project
12. Implementing the Plan
a. Identify who is in charge of implementation process
b. Appoint implementation manager
c. Set priorities
13. Updating the Plan
a. Changes and modifications
b. Communication with public
c. Specific Plan Updates
d. Quarterly Report
e. Semi-Annual Report
f. Annual Report
