"On Sunday, June 14, 1903, at about 5:00 p.m., a cloudburst broke over the hills south of the small farming community of Heppner. Overloaded creeks rushed toward the town, picking up debris from the farms through which they passed. At the south end of Heppner, a steam laundry crossed the path of the water. Debris built up behind the laundry, effectively damming the water until the building could not withstand the pressure. When the water broke free, it hit Heppner with a force unmatched in the history of the state.
After the floodwaters subsided, the task of finding and burying the dead began. Bodies were dug out of the debris and, in some cases, brought back to town from several miles downstream. A temporary morgue was set up in the stone Roberts Building, one of the few structures left relatively unscathed on Main Street. Fatality counts varied; some people simply disappeared and were never accounted for, some bodies were never identified. The final count was 'approximately 250 dead.'"
(Reprinted from the website: www.rootsweb.com/morrow/HeppnerFlood.htm)
Morrow County developed this Natural Hazards Mitigation Plan in an effort to reduce future loss of life and property resulting from natural disasters such as the flood event mentioned above. The Heppner Flood was the worst flood, in terms of loss of life, ever to occur in Oregon. It is impossible to predict exactly when these disasters will occur, or the extent to which they will affect the County. However, with careful planning and collaboration among public agencies, private sector organizations, and citizens within the community, it is possible to minimize the losses that can result from natural disasters.
A natural disaster occurs when a natural hazard impacts people or property and creates adverse conditions within a community. This plan focuses on the primary natural hazards that could affect Morrow County, Oregon, which include drought, wildfire, flooding, windstorms, winter storm, and to a lesser extent, landslides, seismic and volcanic events. The dramatic increase of the costs associated with natural disasters over past decades has fostered interest in identifying and implementing effective means of reducing vulnerability. This Natural Hazards Mitigation Plan is intended to assist Morrow County in reducing its risk from natural hazards by identifying resources, information, and strategies for risk reduction.
The plan is non-regulatory in nature, meaning that it does not set forth any new policy. It does, however, provide: (1) a foundation for coordination and collaboration among agencies and the public in the County; (2) identification and prioritization of future mitigation activities; and (3) assistance in meeting federal planning requirements and qualifying for assistance programs. The mitigation plan works in conjunction with other County, city and state plans and programs, which are:
The plan provides a set of actions to prepare for and reduce the risks posed by natural hazards through education and outreach programs, the development of partnerships, and implementation of preventative activities such as land use or watershed management programs. The resources and information within the mitigation plan establish a foundation for coordination and collaboration among agencies and the public in Morrow County, identify and prioritize future mitigation projects, and assist in meeting qualifications for federal assistance programs. The actions described in the plan are intended to be implemented through existing plans and programs within the County.
What is natural hazard mitigation? Natural hazard mitigation is defined as permanently reducing or alleviating the losses of life, property, and injuries resulting from natural hazards through long and short-term strategies. Example strategies include planning, policy changes, programs, projects, and other activities. Mitigation is the responsibility of individuals, private businesses and industries, state and local governments, and the federal government.i
Engaging in mitigation activities provides jurisdictions with a number of benefits including reduced loss of life, property, essential services, critical facilities and economic hardship; reduced short-term and long-term recovery and reconstruction costs; increased cooperation and communication within the community through the planning process; and increased potential for state and federal funding for recovery and reconstruction projects.
Planning for natural hazards is an integral element of Oregon's statewide land use planning program, which began in 1973. All Oregon cities and counties have comprehensive plans and implementing ordinances that are required to comply with the statewide planning goals. The challenge faced by state and local governments is to keep this network of local plans coordinated in response to the changing conditions and needs of Oregon communities.
Statewide land use planning Goal 7 Areas Subject to Natural Hazards calls for local plans to include inventories, policies, and ordinances to guide development in hazard areas. Goal 7, along with other land use planning goals, has helped to reduce losses from natural hazards. Through risk identification and the recommendation of risk-reduction actions, this plan aligns with the goals of the County's Comprehensive Plan, and helps the County meet the requirements of statewide land use planning Goal 7.
The primary responsibility for the development and implementation of risk reduction strategies and policies lies with local jurisdictions. However, resources exist at the state and federal levels. Some of the key agencies in this area include Oregon Emergency Management (OEM), Oregon Building Codes Division (BCD), Oregon Department of Forestry (ODF), Oregon Department of Geology and Mineral Industries (DOGAMI), and the Department of Land Conservation and Development (DLCD).
The Disaster Mitigation Act of 2000 (DMA 2000) is the latest federal legislation addressing mitigation planning. The legislation reinforces the importance of mitigation planning and emphasizes planning for disasters before they occur. As such, this Act established a pre-disaster hazard mitigation program and new requirements for the national post-disaster Hazard Mitigation Grant Program (HMGP). Section 322 of the Act specifically addresses mitigation planning at the state and local levels. States and local communities must have approved mitigation plans in place in order to qualify to receive post-disaster HMGP funds. Mitigation plans must demonstrate that their proposed mitigation measures are based on a sound planning process that accounts for the risk to the individual and their capabilities.
Morrow County Planning Department Staff utilized the University of Oregon Community Service Center's Oregon Natural Hazards Workgroup, partnered with the Department of Geology and Mineral Industries (DOGAMI) to develop this Pre-disaster Mitigation Plan. The County joined the Partnership for Disaster Resistance and by signing (through the County Commission) a Memorandum of Understanding for this project. FEMA awarded the Mid-Columbia Gorge Region, of which Morrow County is a part, a grant to support the development of the natural hazard mitigation plans for the seven counties in the region.
The planning process used to create Morrow County's Natural Hazards Mitigation Plan was developed by the Community Service Center's Oregon Natural Hazard Workgroup at the University of Oregon.ii The planning process was designed to: (1) result in a plan that is DMA 2000 compliant; (2) coordinate with the State's plan and activities of the Partners for Disaster Resistance & Resilience; and (3) build a network of jurisdictions and organizations that can play an active role in plan implementation. The following is a summary of major activities included in the planning process.
Morrow County prepared and developed the Plan with dedicated time of Planning Department Staff. A Steering Committee to help guide the development of the mitigation plan was appointed by the County Court on March 15, 2006. The Steering Committee was comprised of ten people representing various agencies and organizations in Morrow County, including:
Additional Morrow County staff input came from the Public Works Department and Morrow County Emergency Management. The Committee was instrumental in ensuring the success of the development of the Plan as the Committee helped to guide the development of the plan by setting goals, identifying appropriate activities, and developing a process for public participation.
The Steering Committee held the following meetings at the following dates and locations:
• April 25, 2006 Boardman City Council Chambers
Agenda items: Introductions Purpose and Objectives Review of Morrow County's Scope of Work PDMP Seven Step Process Review of "The Plan" Adjournment
• June 6, 2006 City of Heppner, Petty john Building
Agenda items: Election of Officers Re-cap of the Stakeholder Event on May 16 Discussion of the May 19 storm event Goals and Mission Statement Review of Plan progress Stakeholder Event - Ratification of Information Next Meeting Date and Place Adjournment
• July 11, 2006 Port of Morrow Sand Hollow Room
Agenda items: Review of Plan Progress: Section 1 Review of Plan Progress: Section 2 Review of Plan Progress: Section 3 Vision Statement Discussion
• August 22, 2006 City of Heppner, Pettyjohn Building
Agenda items: Selection of the Vision Statement Review and discussion of the Action Items Review of the Draft Plan, Sections 1 - 5 Review of Plan Appendices and Annexes
• September 12, 2006 Port of Morrow Sand Hollow Room
Agenda items: The Plan - Where we are and What's Next What is needed to complete the Plan Motion to Submit Plan for Review
Citizen involvement in local planning efforts is required by the state of Oregon and during the development of this Plan the citizens of Morrow County provided their expertise, time, and commitment to the process. Community involvement was represented in the form of the Steering Committee, the Stakeholder Forum, and the Stakeholder interviews. The Stakeholder Forum was held on May 16, 2006. At the Stakeholder Forum, each participant provided firsthand, detailed knowledge that was pertinent to risk and hazard identification within each citizen's area of knowledge.
Attendees at the Stakeholder Forum:
Representatives from:
Morrow County Staff also conducted various Stakeholder Interviews. Each interview was intended to obtain specific information about critical infrastructure or other community assets from Morrow County natural hazard stakeholders listed below: Stakeholder Interviews:
As part of the regional PDM grant, ONHW implemented a region wide household preparedness survey. The survey gauged household knowledge of mitigation tools and techniques and assessed household disaster preparedness. The survey results improve public/private coordination of mitigation and preparedness for natural hazards by obtaining more accurate information on household understanding and needs. The results of the survey are documented in the plan's Resource Appendix.
The Oregon Natural Hazards Workgroup (ONHW), with commitment from the Institute for Business and Home Safety (IBHS), provided individuals in the Region with access to, and use of, the IBHS interactive, web-based Open for Business property protection and disaster recovery planning tool. The purpose of the planning tool is to: (1) create understanding of the importance of disaster planning; (2) teach local businesses how to navigate the interactive, web-based Open for Business property protection and disaster recovery planning tool; (3) Assist small businesses develop their own plans during the training; and (4) teach businesses how to communicate the importance of developing and utilizing plans for property protection and recovery from business interruption. In May, 2006 the ONHW conducted the Open for Business Workshop for local businesses in The Dalles and Hermiston. The summary of this workshop can be found in Appendix B.
The County developed a community profile in an effort to gain a better understanding of the County assets that might be at risk from natural hazards. Using data gleaned from Portland State University Population Research Center, Oregon Department of Revenue, and Oregon Employment Department, and the Morrow County Comprehensive Plan, a profile of the County population was formulated which proved to be invaluable sources for creating an accurate profile of the County's population. Local data about critical infrastructure and human and natural resources came from the detailed and extensive knowledge of the stakeholders and pre-existing plans and documents. This information can be found in Section 2.
With information gathered from local and State records, the Morrow County Planning Department identified eight natural hazards that have the potential to affect Morrow County. These hazards include drought, earthquake, flooding, landslides, volcano, wildfire, windstorms, and winter storms. These hazards were also identified by the Partners for Disaster Resistance & Resilience, the Oregon Department of Geology and Mineral Industries (DOGAMI), the Oregon Department of Emergency Management, and the experience of Morrow County Emergency Management, the Planning Department, Public Works Department, and the Rural Fire Protection Districts.
The assessment of these risks to Morrow County was conducted by the community participants during the steering committee and stakeholder meetings who analyzed the particular hazards in the County and their likely locations. The Committee and Planning Staff was aided by the Planning for Natural Hazards: Oregon Technical Resource Guide and the State's Natural Hazard Management Plan Risk Assessment and regional profile. The regional profile was compared against local data, but the County's vulnerability to natural hazard risk was the result of local expert input and the State resources mentioned above. The Planning Staff used this information to determine vulnerabilities and provide the factual basis for proposed mitigation actions. Section 3, Risk Assessment Summary contains the assessments of Morrow County's vulnerabilities to natural hazard risk in this Plan.
The basis for Morrow County's goals concerning mitigation of natural hazard risks lies in the Comprehensive Plan, which directs the County to protect life and property from natural disasters and hazards. This goal of the Natural Hazards Element exists in harmony with many other County planning programs from the Transportation System Plan to the ordinances, plans and policies of the Health Department, Planning Department, Public Works Department and other entities such as Morrow County Emergency Management. The Steering Committee, with the support of the Planning Department and guidance of the Oregon State's Hazard Mitigation Plan Goals along with examples of goals from other Oregon counties, considered and developed the natural hazard mitigation plan goals. Section 4, Mission, Goals and Action Items lists Morrow County's goals for natural hazard mitigation.
The Steering Committee and Planning Department staff evaluated a broad set of mitigation action items for the Plan's identified natural hazards that could impact the County. These "action items" are recommendations for pre-disaster mitigation given to the County in the PDMP process. Members of the Planning Department Staff, Steering Committee, Public Works Department and the Morrow County Stakeholders identified the action items during the Steering Committee meetings, the Stakeholder event, Stakeholder interviews, and by the PDMP Staff in response to needs identified after the May19, 2006 storm event. Other sources of Action Items are listed as follows:
Other Action Item Sources:
1. City Meetings
2. Meetings with city Chambers of Commerce
All of the Action Items can be found in Section 4, Mission, Goals and Action Items and Appendix I of this Plan.
Planning staff have responsibility for the Plan development through its adoption by resolution by the County Court and each of the respective communities in Morrow County. Once the Plan is adopted the Morrow County Emergency Management Department will take over maintenance of the Plan and implementation of the recommendations (Action Items). The Emergency Management Department will maintain the Plan on the County Emergency Management web site and will be responsible for holding, at a minimum, annual meetings of the Steering Committee. The Public Works Department will assist with the maintenance and the Planning Department will be available as needed. Planning staff will, of course, be responsible for implementing those Action Items relative to the Comprehensive Plan, Zoning Ordinance and Subdivision Ordinance.
The Steering Committee, at their September 12, 2006, meeting did recommend that the Plan be submitted for review to the Oregon Office of Emergency Management (OEM) and the Federal Emergency Management Agency (FEMA) for review. Planning staff will make adjustments to the Plan as deemed necessary by the review process. At the time both OEM and FEMA have approved the Plan Planning staff will work with the County Court and each City or Town Council to adopt by resolution the Plan.
Each section of the mitigation plan provides specific information and resources to assist readers in understanding the hazard-specific issues facing Morrow County citizens, businesses, and the environment. Combined, the sections work together to create a mitigation plan that:
This plan structure enables stakeholders to use the section(s) of interest to them.
The Introduction briefly describes the County's mitigation planning efforts and the methodology used to develop the plan. It also includes information about the steering committee's role, and how stakeholders provided input.
The Community Profile briefly describes the County in terms of demographic, economic, and development trends as well as geography and environment, housing and transportation. The Community Profile also documents existing plans, policies, and programs, as well as completed mitigation activities.
This section describes the risk assessment process and summarizes the best available local hazard data. It is organized according to federal requirements for risk assessment: hazard identification; profiling hazard events; and vulnerability assessment/inventorying assets.
This describes the plan components that guide implementation of the identified mitigation strategies. This section also documents the plan vision, mission, goals, objectives, and actions.
This section provides information on the implementation and maintenance of the plan. It describes the process for prioritizing projects, and includes a suggested list of tasks for updating the plan to be completed at the annual and 5-Year review meetings.
The purpose of the hazard specific annexes is to provide additional resources and documentation of the hazard. The hazard annex consists of the regional risk assessments from the State Natural Hazard Mitigation Plan as well as the hazard chapters from the Technical Resource Guide. The State regional risk assessments include information on hazard characteristics, hazard history, probability, and vulnerability. The Technical Resource Guide chapters provide hazard specific information on a statewide basis for the following topics: hazard history, hazard type and characteristics, hazard identification, hazard related legal issues, mitigation examples and best practices, and resources. Where extensive local data is available beyond the scope of information provided in Section 3, the additional local data, including the City Annexes are located in the annex. In addition to the State Risk Assessment and Technical Resource Guide information, the Earthquake Annex also includes a seismic risk assessment report provided by DOGAMI. The hazard specific annexes included with this plan are the following:
This annex contains the summaries of participation by the cities, special hazard information particular to the cities, the city Action Items, and copies of the citys' Resolutions of Adoption of this Plan.
The resource appendices are designed to provide users of the Morrow County Natural Hazards Mitigation Plan with additional information to assist them in understanding the contents of the mitigation plan, and provide them with potential resources to assist with Plan implementation. The resources include:
This appendix includes local, regional, state and federal resources for some of the hazards addressed in the Plan. The directory also includes key publications and additional resources. The Community Service Center's Oregon Natural Hazards Workgroup at the University of Oregon Natural Hazards Workgroup at the University of Oregon developed this appendix.
This appendix includes evidence of the public process involved in the development of this Plan. Steering Committee attendance, meeting minutes, agendas are included. The Stakeholders and stakeholder interview summaries, as well as the Open for Business Workshop summary are all included.
This appendix includes the survey instrument and results from the household preparedness survey implemented by ONHW throughout the region. The survey aims to gauge household knowledge of mitigation tools and techniques to assist in reducing the risk and loss from natural hazards, as well as assessing household disaster preparedness.
This appendix describes the Federal Emergency Management Agency's (FEMA) requirements for benefit cost analysis in natural hazards mitigation, as well as various approaches for conducting economic analysis of proposed mitigation activities.
The existing plans, policies and programs in Morrow County are listed in this appendix. The first section covers plans and policies on the books for the County and the second section covers social service providers.
This appendix describes various tools and techniques that can help communities reduce risk from natural hazards. A brief examination of the effectiveness and limitations for each tool is included.
This appendix provides a list of acronyms for county, regional, state and federal agencies and organization that may be referred to within the Morrow County Natural Hazards Mitigation Plan.
This report is part of the State's enhanced natural hazard mitigation plan. It is intended to be used as a planning process document by communities developing local natural hazard mitigation plans and during periodic review and update processes.
Located in this appendix are the original Action Items submitted to the County during the development of the Plan.
This appendix holds the maps used by the Stakeholders and the Steering Committee to identify Morrow County Assets and Functions pertinent to the County's natural hazard risks. The Assets and Function are divided as follows: human population, economic assets, cultural & historic resources, infrastructure & critical facilities, and environmental.
i Massachusetts Department of Environmental Management. 1999. "Hazard Mitigation: Managing Risks, Lowering Costs".
http://www.state.ma.us/dem/programs/mitigate/whatis.htm Accessed 8/2/02
ii More information on the Oregon Natural Hazards Workgroup can be found at http://darkwing.uoregon.edu/~onhw