1 disaster housing
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Disaster Housing Resources and
Strategies
2011 Emergency Management Conference
Session Objectives
Identify the types of housing resources available to provide interim disaster housing and long-term housing resources to displaced survivors
Discuss issues and challenges associated with the delivery of disaster housing assistance
Identify the elements of a disaster housing “toolkit”
Identify lessons learned from previous disasters
Disaster HousingCornerstone of Recovery
Lack of housing can lead to permanent relocation of large numbers of people (just as affected communities are trying to rebuild their economies, their workers and consumers may not be able to return home due to a lack of housing options).
Solutions to this issue must take into account infrastructure needs, population densities, special needs requirements, cultural sensitivities, and potential dispersion of residents over great distances.
Disaster HousingRental resources provide the best interim and
permanent housing options in most communitiesShortage of affordable housing may exist pre-disasterHistorically, low-income families are disproportionally
impacted by disasters
Viable manufactured housing solutions may exist to augment available vacant residential unitThis option should be viewed as a one tool and not as
an all-encompassing solutionA variety of housing types and resources
Disaster HousingImportant piece of the recovery process
Helps survivors establish stability as they begin the process of recovering and rebuildingWhile it is not necessarily ideal, for many it is
a better alternative than living in cars, tents, damaged dwellings or in tight quarters with family or friends
Disaster Housing needs and strategies will differ greatly in urban and rural areasHolly, ColoradoWindsor, Colorado
Scalable Disaster Housing
Optimal solution: from shelters back home, or to permanent housing, skipping interim housing step
Small-Scale Disasters: sheltering and interim housing only, as repairs are completed
Large-Scale Disasters: more emphasis on permanent housing construction and relocation
Disaster HousingChallenge to PlannersNature/magnitude
size, scope, scale, duration
Complexity, range and diversity of needsFunctional needs, unique households, diverse
cultures
Community characteristicsOne size doesn’t fit all
Available housing optionsthe sum of the existing options for interim
housing may be too small to meet needs
Disaster Housing
Challenge to Planners
Balancing these four interdependent factors to create holistic disaster housing strategy
Providing housing options that consider:Availability of infrastructure and
community servicesProximity to schools, employment, public
transportation, health care, former neighborhoods, family and friends
Disaster Housing
Challenge to PlannersSmall window of opportunity
to introduce mitigation measures for urban planning/redevelopmentto revisit building codes and local regulations (new
green building options)To devise strategies that complement economic goals
Recovery planning needs to be initiated quickly
The Disaster Housing Timeline
EVENT Sheltering/ Immediate
Needs
Interim Housing
Permanent Housing – The New Normal
Phases of Disaster Housing
Sheltering
Only housing assistance needed for most events
Interim
Covers gap from sheltering to permanent housing (up to 18 months)
Permanent
Reconstruction, relocation, new normal
Types of Disaster Housing
Disaster Housing OptionsShelters (Immediate Needs)
Red Cross and local government sheltersTransitional shelters (i.e. hotels and motels –
may be covered by FEMA during Presidentially declared events)
Temporary Repairs or Repair and Replacement AssistanceBlue Roof (often conducted by USACE, quick
repairs to damaged roofs on private homes. This assistance allows residents to return to and remain in their own homes while performing permanent repairs
For Presidentially declared disasters, FEMA provides up to $30,000 for home repairs or replacement dependant on the level of damage
Disaster Housing OptionsCurrent Housing Stock
FEMA and States can work in partnership to inventory and utilize available rental units. Public Housing Privately owned apartments
If Necessary, Temporary Housing Units (Mobile Homes) are a last option Usually only used when infrastructure is significantly
damaged and no rental units are available within a reasonable commuting distance
FEMA launched the Alternative Housing Pilot Program following Katrina and Rita “Katrina Cottages” Potential grants for planned communities using these units
Semi-Permanent Disaster Housing
“Katrina Cottages”In 2006, Congress provided FEMA the
authority to test an alternative housing pilot program (AHPP) on the Gulf Coast
Alternatives: both temporary and permanent structures, some with steel framing, some that are expandable, some that can be assembled quickly, and some that can be easily stored for future use
At the end of the program, those same state grantees may sell, transfer, or lease the units
Semi-Permanent Disaster Housing
Acquisition and Demolition (or Relocation)
Potential funding sources:
Hazard Mitigation Grant Program Post Disaster
Flood Mitigation Assistance Program Properties must have flood insurance
Repetitive Flood Claims Program Properties must have flood insurance
Pre Disaster Mitigation Program
Community Development Block Grants HUD Passed to State and to “Entitlement Communities” (Pop. >
50,000, County pop. > 200,000)
HUD Unmet Needs
Acquisition and Demolition
Community (subgrantee) purchases home from a willing seller No eminent domain
Pre-event or current market value, as appropriate (need documentation)
Repetitive Loss properties often prioritized
Deed restriction on the property – open space in perpetuity Conserve/restore natural floodplain function
Property can’t be contaminated with hazardous materials Other than incidental demolition or household waste
Property cannot be part of a future project that will use the land i.e. roads, levees, restrooms or open space administration buildings
Hazard Mitigation Grant Program
Additional 15% of combined Individual and Public Assistance funding available for Hazard Mitigation projects
75% Federal/25% local
HMGP administered by the State, in partnership with FEMA HMGP Administration Plan that can be readily enacted following
Must be cost-beneficial based on FEMA benefit cost methodology
Communities must have a local hazard mitigation plan time of obligation
Examples of use in Colorado for Acquisition and Relocation La Junta (Flood) Colorado Springs/Manitou Springs (Landslide)
Acquisition and Demolition
Reconstruction and Non-Profits
Non-profits often provide essential services in terms of clearing debris, cleaning properties and re-building homes
Alaska, 2009 (Eller and Gerber)
Significant flooding impacted rural areas Areas not easily accessible by road
Unorthodox Pilot Program FEMA used direct agreements with non-
profits Paid for volunteer travel, supplies,
logistics and administration support in lieu of for-profit contractors
Christian Reformed World Relief Committee (CRWRC)
Mennonite Disaster Services (MDS) Samaritans Purse (SP)
Non-profits built and repaired homes
supported other human services needs (including cash)
NVOAD organizations provided $3,818,865 worth of services
14 homes built, 40 repaired
Federal direct investment was significantly less
Disaster Housing Resources
Interim Disaster Housing Resources
American Red Cross and local governmental or voluntary organizations may use hotel or motel rooms to temporarily shelter the survivors. These short-term stays provide time for the arrangement of more appropriate housing venues.
Federal assistance often does not come early in this cycle, if at all (while on average there have been about 50 disaster declarations per year, in many instances, federal help is neither requested nor granted.
Interim Disaster Housing Resources
Rental properties where available are first and best option for interim housingIdentify resources for disabled residents
Manufactured HousingOn-Property HousingGroup SitesKatrina Cottages
Interim Disaster HousingRental Assistance
American Red Cross, The Salvation Army, other voluntary and faith-based organizations
HHS Temporary Assistance for Needy Families (TANF)
HUD Community Development Block Grant (CDBG) Emergency Funds
USDA Rural Development Disaster Loans/GrantsMust meet eligibility requirements related to income for
federal rental assistance programs
Interim Disaster Housing Resources
Local Public Housing Authorities (PHAs)
Under Section 408, the most common form of aid is financial assistance. This help, available to both homeowners and renters who have lost their primary residence, is used by survivors to rent temporary replacement housing while their homes are repaired and while they are pursuing employment that will allow them to resume their own rent payments.
FEMA Disaster Housing Assistance
Rental assistance for renters and homeowners displaced from their primary residence by a disaster
Home repair or replacement assistance for homeowners displaced from their primary residence
Direct housing for homeowners or renters (manufactured homes, federal-provided assistance)
Maximum financial assistance: $30,000/household
FEMA Disaster Housing Assistance
Agency officials record the address of the residence, either the home or the rental unit, and then dispatch a contract housing inspector to meet with the victim. The purpose of this meeting is to verify the reported damage and to gather information on the habitability of the home.
FEMA Disaster Housing Assistance
Public Assistance Funding for Public Housing Facilities
Since 2008, disaster damaged public housing facilities in declared counties may be eligible for Public Assistance
Emergency work (debris removal, demolition)
Permanent work (repair, replacement, reconstruction)
FEMA Disaster Housing AssistanceFEMA Individual and Housing-Related
Assistance 1998-2008 (in billions)Housing Repairs 2.900
Other Needs Assistance (ONA) 1.500
Individual and Family Grants (IFG) 1.300
Mobile Homes and Trailers 1.100
Rental Assistance 0.964
Replacement Assistance 0.272
Lodging 0.021
Source: FEMA, Office of Legislative Affairs
Permanent Disaster HousingSBA Disaster Loan Program
FEMA (Direct Assistance) for permanent home construction, where no other options exist
HUD (Mortgage Assistance/Foreclosure Moratorium)
USDA Rural Development (grants, loans, rental assistance)
DOE (information, resources and training for reconstruction)
Local-State Economic/Community Development Agencies
VOAD member agencies (CRWRC, Mennonites)
Private Sector (builders, developers, lenders)
Permanent Disaster Housing
SBA Disaster Loan Program
Home Disaster LoansUp to $200,000 at 2.5% to replace primary
homeHomeowners/renters up to $400,000 for
personal property (2.5%)
Business Disaster LoansUp to $2 million at 4%
Economic Injury Disaster Loans (EIDL)For businesses unable to meet obligations
as a result of a disaster
Permanent Disaster HousingCommunity Process
GovernmentInfrastructure repairs, land use planning, service
extensions, capital improvements programming, building codes, hazard mitigation
Private SectorMarket characteristics, sustainable development,
green/energy-efficient technologies, affordable housing, banks and mortgage lenders, insurance
CitizensHomeowners, landlords, renters, community
groups
Disaster Housing Lessons from Previous Disasters
Operation Safe HavenShelter Management
Shelter Site SelectionCongregate careMass feeding
Red Cross to the rescue!Formalizing lead role
Volunteer Coordination
Non-Traditional Partners (COVA)
Utility and Damage Deposits
The Salvation Army to the rescue!
Operation Safe HavenLong-Term Recovery Committee
Dealing with extraordinary unmet needsCoordination of case management
Formalizing Relationships with Nonprofit PartnersEstablishing a paper trail for reimbursementNeed for formal delegation of responsibility
FEMA Public Assistance Program
Host-State Shelter PlansEQ Planning/Utah’s Wasatch Front
Case Study - Iowa Flooding
Source: www.gazetteonline.com
Temporary Housing Mission Thousands of homes destroyed in the
2008 flood – 4000 alone in Cedar Rapids
At its peak, there were 564 occupied FEMA Temporary Housing Units in an operational area of roughly 7500 square miles
600 commercial site and 80 private site installations
FEMA leased commercial sites in Cedar Rapids, Coralville (Iowa City), Waterloo/Cedar Falls, and some of the affected small towns
Private Sites generally approved in small towns without commercial sites.
Temporary Housing Mission
Generally the temporary housing mission was very successful
Temporary Housing served as an anchor
Most customers were extremely grateful for having their own place to live
That being said, there were significant operational challenges that are worth discussing
Takeaway Lessons
Anticipate all potential conditions when creating contract specs
Program managers, set up financial procedures before program starts operations – document everything!
Do not overreact to any problem, think through your options, even (especially) if there is media pressure
Fourmile Canyon FireBoulder Housing Authority
Cash Donations (Foothills United Way)
Rebuilding IssuesUnder-insuranceHazardous DebrisRelaxing Building CodesFlood/Debris Flow Preparedness and Mitigation
Fourmile Canyon FireState Rental Assistance
(three mos. + deposit if qualified)TANF (HHS)CDBG (HUD)Eligibility
SBA Disaster Loan ProgramHome Loans: 44
applications/11 approvedBusiness/EIDL Loans: 20
applications/3 approved
Total SBA Loan Assistancefor Fourmile Canyon Fire: = $1,674,100
1999 Floods and Landslides
1999 Floods and Landslides
Significant flooding on Fountain Creek and the Arkansas River
As much as 13+ inches throughout the Arkansas Basin, Damages to Colorado Springs and 12 Eastern counties estimated at $100,000,000
Over 400 homes damaged or destroyed
Manitou Springs
3 properties were condemned slow moving landslide. Properties were purchased,
demolished and converted to open space.
La Junta
53 damaged homes in North La Junta purchased, demolished, converted to open space.
Funds included HMGP, FMA, HUD Unmet Needs and CDBG
Delivery of Disaster Housing Assistance
Locating Disaster Housing Resources
www.coloradohousingsearch.com Socialserve.com2011 Initiative
Housing Resources Reference Guide
Public Messaging
Insurance Primary source of post-disaster housing assistance
Insurance coverage in Colorado is generally strong Contributes to decisions about disaster declarations
Common exclusions: Flood (covered through NFIP) Earthquake Intentional Loss “Earth Movement” (landslide) Increased costs due to new building codes
Possible to purchase additional to insurance to cover this
Additional Living Expenses Usually Included Helps with costs of hotel, rental car and other needs while home is being
fixed
Resources: Rocky Mountain Insurance Information Assocation; Colorado Deparment of Regulatory Affairs, Division of Insurance
Insurance – What you Should Know
Insurance typically covers: Fire and lightning Windstorm or hail Aircraft Vehicles Smoke Theft/vandalism Falling objects Ice/Snow load Freezing of plumbing, heating,
AC etc
Replacement Cost Not market value
Common Methods:
Actual Cash Value Replacement cost minus
depreciation
Replacement Coverage Cost without deduction for
depreciation Coverage limits on this type of policy Important to keep up-to-date on
coverage
Extended Replacement Covers costs up to a certain
percentage over the limit (generally 20%)
Helps defray increased construction costs
Wildfire Insurance – What you Should Know
Create a home inventoryCan you remember all of your possessions and how much
they cost?
In Colorado, insurance companies often ask homeowners to mitigation according to local codes and Firewise program recommendations:Defensible space within 30’ of the homeRemove branches that overhang the roof or within 15
feet of the of the chimneyKeep woodpiles and propane tanks at least 30 feet away
from structures
Insurance companies frequently inspecting homes
Flood Insurance – What you Should Know
Available to all homeowners, renters and businesses in jurisdictions that participate in National Flood Insurance Program
Homeowners Policy does not cover flood insurance (same for Earthquake)
Insurance can be purchased at any time, but there is a 30 day waiting period If flood is imminent and one tries
to buy insurance, it will not take effect in time
Does not cover basement improvements Cover structural elements,
essential equipment and other basic items normally in the basement
Required for homes purchased with Federally backed mortgages in the Special Flood Hazard Area (100 year floodplain) 20-25% of insurance claims come
from outside the SFHA
*Proactive communities participating in the Community Rating System can lower insurance premiums
Fair Housing Act
Provides protections against discrimination in housing based on race, national origin, gender, disability, religion and familial status
FHA provisions still apply in disaster setting and should be included in strategies, public messaging and advertising related to disaster housing
Fair Housing Disaster Toolkithttp://www.hud.gov/offices/fheo/library/FHEO-Disaste
rToolkit.pdf
Housing and Public Information
Pre-developed consistent, unified message essentialQuick fact sheets will be distributed to “front line” PIOs
Coloradohousingsearch.com will be marketed heavily before a disaster to increase available listings In 2009, website was 2nd only to Craig’s list in number of
listings for Colorado properties
Unified public messaging around housing should reduce number of “grassroots” housing websites
COEmergency Facebook page will be tested during March Tornado exercise Push out Housing and Donations/Volunteers related
information
Provide additional assistance for applicants once they have exhausted assistance through insurance, SBA and FEMA:
•home repairs/rebuilding•furniture•transportation•medical bills•behavioral health services•case management•other unmet needs
Long-Term Recovery Committees
Committees are organized with local leaders, citizens, civic groups, faith-based and voluntary organizations
Elements of a Disaster Housing Toolkit
Disaster Housing Toolkit
Resource Rental Database
Related Web Sites/Navigation Instructions
Shelter Database
Disaster Housing Plan or Strategy
Public Information Plan/PSAs for Landlords
Standing Disaster Housing Task Force or Committee
Existing Housing Programs (Section 8, CDBG, TANF)
Cooperative Training and Exercises
Disaster Housing Case Management
Family Intake Process
Consolidated Assistance Network (CAN)
Release of Information (ROI) Form
Organizations that Do Disaster Case Management
NVOAD Points of Consensus on Disaster Case Management
Coordination with Long-Term Recovery Committees
Developing a State or Local Disaster Housing Strategy
National Disaster Housing Strategy
Describes how Nation provides disaster housing and recommends improvements
Describes broad range of organizations involved
Articulates key principles that guide disaster housing
Affirms disaster housing roles and responsibilities
Seeks to build capabilities to provide broad range of flexible housing options
Better integrates disaster housing assistance w/related community services and long-term recovery efforts
National Disaster Housing Strategy
Implementation Goals1. Support efforts to return to self-sufficiency
2. Affirm fundamental housing roles/responsibilities
3. Increase ability to meet the needs of all disaster survivors, including individuals with disabilities
4. Build capabilities to provide a broad range of options
5. Integrate housing with related services/recovery efforts
6. Improve disaster housing planning
7. Engage full range of partners/ensure federal laws followed
State-Led Disaster Housing Task Force
SLDHTF Kickoff meeting held in May 2010
Brings together State AgenciesDept. of Local Affairs (Housing, Emergency
Management, Local Government), Dept. of Human Services (Supportive Housing and Homeless Programs)
Federal PartnersFEMA, HUD and USDA Rural Development
Private and Non-Profit PartnersColorado Coalition for the Homeless, Colorado
Housing and Finance Authority, American Red Cross, Colorado Manufactured Housing Association
Mission -- Disaster Housing TF
Organize housing authorities to collaborate in the development of a joint, comprehensive housing plan that maximizes the availability and use of all housing optionsPlan should establish framework for preparing for
and responding to potential disaster events that necessitate a housing mission
Should ensure effective and efficient implementation of disaster housing programs in partnership with local, state, federal, nonprofit and private sector stakeholders
Mission -- Disaster Housing TF
Preparedness ActivitiesIdentify risks (and potential housing
scenarios), develop capabilities and identify potential gaps
Response ActivitiesEvaluate housing requirements (review
or participate in PDA), discuss potential solutions, develop recommendations, support local governments and various stakeholders in implementing housing programs
Colorado Disaster Housing TF
Disability Organizations/Advocacy GroupsColorado Cross Disability Coalition (CCDC)Area Agencies on Aging
Pets and Companion AnimalsColorado Veterinary Medical Reserve Corps
(CVMRC)Community Animal Response Teams (CARTs)
Damage AssessmentCDEM/Local OEM OfficesColorado Chapter Inc. (ICC)
Shelters/Family IntakeAmerican Red Cross
Colorado Disaster Housing Strategy
Holistic Re-housing StrategyMonthly rental assistance/security & utility
depositsCase management servicesPermanent housing solutions
Initiates at the “lowest” level (local public housing authorities)
Disaster Housing Toolkit
Local Disaster Housing Plans
Recommendations (Pre-Disaster)
1. Assess capabilities and available resources to provide sheltering, interim housing and permanent housing
2. Engage local housing authorities and voluntary agencies in disaster housing planning
3. Assess availability of housing resources to meet unique needs of citizenry (disabled, elderly, low-income, undocumented residents, ethnic groups with language barriers, group/foster homes, homeless residents)
4. Develop local/community disaster housing plan
Local Disaster Housing StrategiesPost-DisasterIdentify/prioritize housing needs (Human
Services/OEM)
Identify available resources (Housing Authority, Human Services
Identify available housing programs and sequence of delivery (OEM, Housing Authority, Human Services)
Identify need for alternative forms of housing assistance (manufactured housing, mobile homes, travel trailers)
THANK YOU
Questions/DiscussionBob Wold, Recovery Manager
DOLA, Division of Emergency [email protected]
Iain Hyde, Mitigation SpecialistDOLA, Division of Emergency [email protected]