State of Colorado National Disaster Resilience Competition Application Draft for Public Comment 3.3.2015
Exhibit A - Executive Summary In September of 2013, Colorado experienced the single most devastating natural catastrophe in the state’s 138-year history. Unprecedented levels of rain fell on 24 counties, and 18 Counties were included in the presidential disaster declaration (DR-4145). Ten Coloradans lost their lives, and more than 18,000 people were forced to evacuate their communities. In all, the September 2013 floods wreaked an estimated $3.9 billion in damages to housing, infrastructure and the economy. The floods were preceded by the three most destructive wildfires in State history, resulting in the loss of more than 1,000 homes, significant and lasting impacts to watersheds, and subsequent post-wildfire floods and debris flows that further impacted homes and infrastructure. The High Park, Waldo Canyon, and Black Forest fires were also declared presidential disasters (DR-4067, DR-4134). Through all of these disasters and disruptions, Coloradans have demonstrated an unshakeable resolve to recover and to rebuild better, stronger and more resilient, while enhancing the social, economic and environmental vibrancy that makes Colorado great. The State of Colorado’s goal is to empower a culture of resilience and to systemically integrate resilience into the every-day business of Colorado communities. Doing so requires thoughtful planning, a commitment to implementation, and ultimately resources – financial and technical –to make it a lasting reality. This process begins with the development of the Colorado Resiliency Framework. The State, through the Framework, seeks to cultivate and empower a culture of resilience through the evaluation of risks and vulnerabilities and the development of integrated, long-term cross-sector resilience strategies. Development of the Framework began in Page 2
July of 2014, when the State of Colorado established the CRWG (CRWG) and charged them with serving as the steering committee for its development. With logistical, facilitation and technical support from the Federal Emergency Management Agency, the CRO coordinates the CRWG. The CRWG initiated six sector-specific sub-committees with 154 stakeholder participants from federal and state agencies, local governments, professional associations, nonprofits and the private sector. Moving forward with the implementation of the Framework, the State seeks to leverage CDBG-NDR funds for lasting, institutional change at the state and local levels by integrating resiliency strategies and practices into all aspects of society, policy and capital projects. This goal will be achieved through a strategy that utilizes CDBG-NDR funds to seed the creation of the Colorado Community Resiliency Partnership Fund (Fund) that will attract investment partners from the State, federal agencies and the private sector. Strategies brought forward for funding through the Fund will reflect the areas of highest impact as defined by the Framework and local resiliency plans, studies and community engagement processes. Loan repayments along with additional, leveraged capital will grow and sustain the Fund. The creation of the Fund and the identification of priority projects to be funded will be informed by four key initiatives currently completed, underway or planned by the Governor’s Colorado Recovery Office (CRO), the State of Colorado, and local communities, with the guidance of the CRWG (CRWG): the Framework; Local Resiliency Strategy (Local plans); Watershed Master Plans,; and a Risk and Vulnerability Assessment. Throughout the focus groups, participants made clear that a lasting and stable funding source, dedicated to resiliency and disaster risk reduction, was needed to carry this effort forward beyond the recovery process from recent floods and wildfires. The Fund will establish this Page 3
financial support for implementation of the Framework and Local plans – to meet the most pressing immediate recovery needs and build long-term resiliency. The Fund, seeded with CDBG-NDR funds, will be a model public-private resiliency partnership by attracting capital. Working together, Colorado’s comprehensive planning processes and the Community Resiliency Partnership Fund will create long-term solutions that achieve Colorado’s resiliency goals.
Page 4
Exhibit B – Threshold Requirements State of Colorado NDRC Application
Page 5
Exhibit B - Threshold Requirements General Section. In 2012 and 2013 Colorado experienced wildfires and flooding that brought unparalleled devastation to the State. In September 2013, Colorado suffered catastrophic flooding as a result of unprecedented rainfall across twenty-four counties in the State. Highvelocity floodwater racing down the mountain corridors resulted in 10 lost lives and caused more than 18,000 people to evacuate their communities. The September floods impacted the entire social fabric of the State, causing major destruction to housing, businesses, and infrastructure. Colorado is currently engaged in a monumental ongoing recovery effort. An estimated 28,363 dwellings were impacted by floodwaters, and 1,852 homes were destroyed. Previously, the State of Colorado experienced the three most destructive wildfires in State history in 2012 and 2013 – the High Park, Waldo Canyon and Black Forest Fires. The fires destroyed a combined 1,092 homes, inflicted severe damage to infrastructure, watersheds and natural resources, and directly contributed to flooding, debris flow and erosion events that further damaged additional homes, businesses and infrastructure. Eligible Applicant. The State of Colorado has been identified as an eligible applicant in the NDRC document. In addition, signed Partner Letters have been provided by the Governor of Colorado and the Partner entities described in Exhibit C.b. The Partners have committed to work collaboratively throughout the entirety of the grant to undertake specified actions. Eligible County. The target counties of Boulder, Weld, and Larimer meet the HUD-identified most impacted and distressed counties and as such, each geography meets the threshold for the Most Impacted and Distressed characteristics. Most impacted and distressed target area. The target counties of Boulder, Weld, and Larimer have unmet needs in the areas of Housing, Infrastructure and Environmental Degradation. Page 6
Economic needs are not outlined in this application. The State of Colorado’s CDBG-DR action plan outlines significant economic unmet needs, as well as economic resiliency activities funded through its CDBG-DR allocation that will continue to be implemented in conjunction with proposed NDRC activities. The details of the minimum thresholds for impact, distress and unmet needs are presented for each county and sub-county area below. Boulder, Larimer and Weld Counties have been determined by HUD to be Most Impacted and Distressed Counties, per the NDRC NOFA Appendix B. Census tracts 8059009808 and 0841006700 have been determined by HUD to be Most Impacted and Distressed Sub-County Areas, per the NDRC NOFA Appendix B. These Counties and Sub-County Areas are only required to demonstrate the minimum threshold Unmet Need. The following information is provided to demonstrate that each target area meets thresholds set forth by the NOFA. However it does not account for all unmet need remaining from the eligible disaster(s), which is summarized in Exhibit D. Boulder County Unmet Need— Infrastructure: During September 2013, heavy rainfall caused severe flooding which deposited extensive debris into the City of Longmont’s Ralph Price Reservoir, in Boulder County. This damage resulted in significant displacement of water storage volume on which Boulder County residents depend. Repair will involve debris removal and dredging, earthwork and re-vegetation, and existing access roadway improvements. The total estimated cost to repair the reservoir is $5,428,766, with $4,071,574 budgeted to the project from federal funds and $678,596 from state funds, leaving $678,596 in unfunded cost (Unmet Need). Data Sources: FEMA Project Worksheet— PA-08-CO-4145-PW-01079(0) See Unmet Needs Sources and Uses Worksheet in Attachment E.
Page 7
Larimer County Unmet Need— Infrastructure: In September 2013, severe storms with heavy rains created excessive water run off that resulted in extensive flooding of 10.27 miles of CR 44H, also known as Buckhorn Road in Larimer County. CR 44H is located in a mountain canyon setting adjacent to Buckhorn Creek. Larimer County owns and is responsible for the maintenance of this section of roadway. The high flood water that overflowed the creek overtopped the roadway and created massive erosion of the roadway and creek area including damage to the roadway aggregate base, rock excavation fill, adjacent slopes, embankment, and culverts, leaving the roadway closed to all traffic until temporary work was completed. The total estimated cost to permanently repair the road is $4,315,229, with $3,236,422 budgeted to the project from federal funds and $539,404 from state funds, leaving $539,404 in unfunded cost (Unmet Need). Data Sources: FEMA Project Worksheet— PA-08-CO-4145-PW-00332(0) See Unmet Needs Sources and Uses Worksheet in Attachment E. Weld County Unmet Need— Infrastructure: The severe storms of September 2013 caused flooding of all tributaries in the Weld County area, damaging Riverside Park in the City of Evans. The flooding of the adjacent South Platt River inundated and scoured areas of the park, uncovering an abandoned landfill that had been closed in the 1970s. Landfill waste was scattered throughout the park, requiring the removal and replacement of affected areas. All of the recreational facilities at the park were inundated with 4.0 Vertical Feet of floodwaters for several days. The total estimated cost to repair the park is $5,639,332, with $4,229,499 budgeted to the project from federal funds and $704,917 from state funds, leaving $704,916 in unfunded cost (Unmet Need). Page 8
Data Sources: FEMA Project Worksheet— PA-08-CO-4145-PW-00332(0) See Unmet Needs Sources and Uses Worksheet in Attachment E. Census Tract 8059009808 (Jefferson County) Unmet Need— Infrastructure: During September of 2013, floodwaters undermined an approximately 160-foot long by 10-foot wide by 18-foot deep section along the east side of the asphalt roadway. This damage cut into and undermined the roadside embankment, compromising the sub-base, base and road surface, including approximately 160 linear feet of single guardrail along the entire stretch of damaged roadway. The total estimated cost to repair the road is $1,380,821, with $1,035,616 budgeted to the project from federal funds and $172,603 from state funds, leaving $172,603 in unfunded cost (Unmet Need). Data Sources: FEMA Project Worksheet— PA-08-CO-4145-PW-00983(0) See Unmet Needs Sources and Uses Worksheet in Attachment E. Unmet Need— Infrastructure: From September 11 through September 30, 2013, severe storms, flooding, landslides and mudslides caused floodwaters to overtop embankments of Coal Creek damaging the roads located within Crescent Park in Jefferson County that are owned and maintained by Jefferson County. There were 14 locations with road damages on Twin Spruce Road within Jefferson County. The total estimated cost to repair the road is $1,891,987, with $1,418,990 budgeted to the project from federal funds and $236,498 from state funds, leaving $236,498 in unfunded cost (Unmet Need). Data Sources: FEMA Project Worksheet— PA-08-CO-4145-PW-00905(0) See Unmet Needs Sources and Uses Worksheet in Attachment E. Census Tract 0841006700 (El Paso County) Unmet Need— Infrastructure: * data collection in process, to be completed in final application. Page 9
Data Sources: Engineering Report to be provided. The Sub-County areas described below require local data to substantiate Most Impacted and Distressed Characteristics, in addition to Unmet Need. Census Tracts 108041007500 & 108041007602 (El Paso County) Most Impacted— Housing Damage: The Black Forest Fire of June 2013 was the most destructive in Colorado history. This Eligible Disaster destroyed 491 homes in the two adjacent Census Tracts listed above. These damages have been verified in partnership with the El Paso County Office of Emergency Management and El Paso County Assessor's Office. Upon request, the State of Colorado can provide a map identifying damaged parcels to the NDRC review team. The damages are also documented by the El Paso County Black Forest Fire After Action Report. Most Distressed— Housing: The Black Forest Fire caused damage to 11.6% of all homes in the combined adjacent census tracts listed above, or 489 of 4,247 homes. These damages have been verified in partnership with the El Paso County Office of Emergency Management and El Paso County Assessor's Office. Upon request, the State of Colorado can provide a map identifying damaged parcels to the NDRC review team. The damages are also documented by the El Paso County Black Forest Fire After Action Report. Unmet Need— Infrastructure: * data collection in process, to be completed in final application. Data Sources: FEMA Project Worksheet PA-08-CO-4134-PW-00003(0) Census Tracts 108041003707 & 108041003708 (El Paso County) Most Impacted— Housing Damage: The Waldo Canyon Fire of June 2012 destroyed 347 homes, and damaged many others in the two adjacent Census Tracts listed above. These damages have been verified in partnership with the El Paso County Office of Emergency Management and El Paso County Assessor's Office. Upon request, the State of Colorado can provide a map Page 10
identifying damaged parcels to the NDRC review team. The damages are also documented by the Colorado Springs Waldo Canyon Fire After Action Report. Most Distressed— Housing: The Waldo Canyon Fire caused damage to 11.7% of all homes in the combined adjacent census tracts listed above, or 347 of 2,946 homes. These damages have been verified in partnership with the Colorado Springs Office of Emergency Management. Upon request, the State of Colorado can provide a map identifying damaged parcels to the NDRC review team. The damages are also documented by the Colorado Springs Waldo Canyon Fire After Action Report. Unmet Need— Environmental Degradation: Data Sources: * data collection in process, to be completed in final application. Census Tract 08041003400 & 08041002400 (El Paso County) Include Most Impacted— Housing Damage: Most Distressed— Housing: Unmet Need— Environmental Degradation: Data Sources: * data collection in process, to be completed in final application. Census Tract 08041003100 Eligible activity. The State of Colorado will demonstrate that each CDBG-NDR activity proposed is an eligible activity in the Phase 2 application. Resilience incorporated. Each CDBG-NDR disaster recovery activity described in the Most impacted and distressed target area above will improve the described area’s resilience to current and future threat(s) and hazard(s), including effects of climate change. Colorado is addressing these target area needs through a broad range of strategies and funding sources. NDRC is one of these strategies that are focused on building long-term resiliency. The Framework, which is Page 11
scheduled to be adopted by the Governor at the end of May, 2015, will outline a holistic range of resiliency strategies that the state will undertake to implement resiliency and lay the groundwork for empowerment of a culture of resilience at the local level. All of the recovery and resilience actions described in this application will have been undertaken after the 2013 Floods and 20122013 wildfires. Planning and collaboration – between federal, state and local government, and between government, non-profits, and the private sector and individual citizens - is essential to cultivating and empowering a culture of resilience. Additionally, thoughtful multi-stakeholder planning is critical to the sustainability and success of projects funded through the CDBG-NDR program. The State is piloting the development of up to five Local Resiliency Strategy plans (Local plans) in the summer of 2015, which will be guided by, and align with the Colorado Resiliency Framework. These Local plans will be holistic in nature and will identify resilience strategies with co-benefits across housing, infrastructure, economic, health and social, watersheds and natural resources and community sectors. These plans will also be a catalyst for local communities to integrate resiliency strategies into long-term decision-making by capturing and prioritization of ongoing local efforts, and identifying new resilience strategies. The planning process in each planning area will also lead to the identification of those projects that will have the highest and multiple areas of impact for which the State will seek funding for through CDBG-NDR. The State proposes to fund resiliency projects through a newly created Colorado Community Resiliency Partnership Fund (Fund) that will provide both direct grants and loans to priority projects. CDBG-NDR funds will seed the Fund and be used to leverage other private and public
Page 12
capital to provide a stable and sustainable source of funding for resiliency programs and projects long into the future. The fund is further described in Exhibits E.b., F.a. and G. Meet a national objective. Colorado will demonstrate that each proposed activity other than general administration and planning, which are not subject to such demonstration, can and will meet a CDBG-NDR national objective. Overall benefit. At least 50 percent of the funds requested in Colorado’s application will assist activities that will provide benefit to low- and moderate-income persons in the form of services, area benefit, housing, or jobs, to meet the national objective of benefit to low-and moderateincome persons or request and receive a waiver from HUD. This level of commitment will be a factor in the project evaluation criteria included in the Local plan development process to prioritize projects and is fundamental to the State’s current CDBG-DR programs. Establish tie-back. All eligible activities will tie-back to one of four presidentially declared disasters: the 2013 severe storms, floods, landslides and mudslides (DR-4145), the High Park and Waldo Canyon Fires (DR-4067), and the Black Forest Fire (4134), have damage caused directly by the floods and wildfires, or as a consequence of the floods and wildfires.
Page 13
Exhibit C - Capacity State of Colorado NDRC Application
Page 14
Exhibit C - Capacity a. General management capacity. The eligible applicant and grantee for CDBG-NDR is the State of Colorado. Governor Hickenlooper created the Colorado Recovery Office (CRO) and designated a Chief Recovery Officer to oversee implementation of the State’s disaster recovery and resiliency efforts. For the CDBG-NDR Program, the CRO will work in collaboration with the Colorado Department of Local Affairs (DOLA), who will serve as the administrative and fiscal agent responsible to HUD for program oversight, reporting, and compliance under the general guidance of the CRO. A team of agencies described in section C.b. below administers current CDBG-DR funds. While CDBG-NDR will be managed by CRO and DOLA, the cooperating partners currently administering the State’s CDBG-DR programs, along with the CRWG, will advise and support CDBG-NDR activities under CRO and DOLA guidance. As of October 1, 2014, CRO has, in partnership with agencies throughout the state and federal government, coordinated efforts to utilize more than $1.6 billion in flood recovery resources. This was accomplished by leveraging a myriad of partnerships at the federal, state, regional and local levels, involving 31 different funding sources. With this approach, resources have been directed to support local communities, businesses, streams and floodplains, and natural and cultural resources. For example, the State supported the creation of nine new watershed coalitions to ensure that watersheds in impacted areas were rehabilitated through a holistic, multi-objective and cross-regional effort. This has resulted in Watershed Master Plans, with participation from government agencies, landowners, businesses, nonprofits and citizen groups. As another example, the State Division of Water Resources mobilized more than 100 volunteer professionals to inspect 207 dams to ensure the ongoing safety of the public. In addition, they provided flood warnings to water users so they could prevent damage to livestock Page 15
and equipment. In response to housing needs, the State provided housing location services through www.coloradohousingsearch.com and a toll-free call center with services in English and Spanish. The website was updated regularly and provided outreach to landlords in the immediate aftermath of the disaster. These are just three examples out of more than 30 collaborative initiatives that demonstrate the State’s capacity to lead, coordinate with a variety of stakeholders, and realize results. Recovery funds have not only been used to reconstruct, they have been used to build planning processes, partnerships and institutions to affect lasting resiliency. The State has initiated the Colorado Resiliency Framework as the foundation for Local Resiliency Strategy Plans and the Community Resiliency Partnership Fund, as further described elsewhere in this application, principally Exhibits C, F and G. The NDRC application was a collaborative effort led by the Colorado Recovery Office with support from the state agencies named above and a consultant team of Ecology and Environment, Inc. (E&E) and Grant Management Associates (GMA), who were engaged to provide specialized expertise in the areas of community resiliency planning and NDRC application preparation. The application was deeply informed by the community engagement process that the CRO and State of Colorado conducted to develop the Colorado Resiliency Framework. The engagement process included focus groups in 7 communities, expert interviews, a social media campaign, and surveys to local governments, non-profits, businesses and citizens. More information about the community engagement process is included in Section C.c. of this Exhibit. The CRO, E&E, and GMA held daily team calls and E&E staff worked in the CRO office to jointly collect data, prepare materials, attend meetings and develop the application
Page 16
package. Colorado Recovery Office staff was active and critical members of the application development team. b. Cross-disciplinary technical capacity. Technical Capacity of the State: The State of Colorado possesses significant capacity to implement a long-term resiliency program. In order to successfully implement the holistic approach described in the State of Colorado’s NDRC application, several programmatic components will be required: Financial and administrative capacity to manage federal funds; technical capacity to support and empower implementation of resiliency strategies at the state, regional and local level; and, capacity to cultivate a robust public-private partnership required to create and sustain the Colorado Resiliency Partnership Investment Fund. Grant Management Capacity: As previously noted, the State of Colorado estimates that the 2013 floods inflicted approximately $3.9 billion in housing, infrastructure, watershed and natural resource and economic impacts to Colorado communities. Currently, approximately $1.6 billion in federal, state and non-governmental funding has been dedicated to the disaster to meet recovery and resiliency unmet needs. The majority of these funds, including FEMA Public Assistance, FEMA Hazard Mitigation Grant Program, Federal Highways Administration Emergency Relief, Community Development Block Grant-Disaster Recovery, Natural Resources Conservation Service Emergency Watershed Protection Program, and the State Disaster Emergency Fund, are being managed by agencies across Colorado state government. A full accounting of allocated recovery funds can be found in the CRO’s One-Year Report. Currently, the State of Colorado has $262.1 Million in Community Development Block Grant-Disaster Recovery (CDBG-DR) funds approved through its HUD-approved Action Plan to support recovery and resiliency efforts in Colorado (part of the $1.6 billion already dedicated to Page 17
the disaster). In addition, the State is currently in the process of completing a substantial amendment for an additional $58.2 million. The Colorado Department of Local Affairs serves as the fiscal agent for CDBG-DR funds. However the program also includes participation from agencies including the Department of Public Safety, Department of Agriculture, Office of Economic Development and International Trade, and under the strategic leadership of the Governor’s Colorado Recovery Office (CRO), as illustrated below. As a part of its approved
Action Plan, the State of Colorado has developed a HUD-approved financial controls plan that outlines the State’s robust monitoring and reporting practices. These practices ensure that CDBG-DR funds are spent according to the rules and regulations set forth by the Code of Federal Regulations and all applicable Federal Register notices. The State’s CDBG-DR program incorporates on-going grant management technical assistance with grantees and sub-recipients.
Page 18
Technical Assistance: Throughout the course of the recovery and resiliency process catalyzed by recent disasters, the State of Colorado has provided a comprehensive range of technical assistance to local governments, businesses, non-profits and other community based organizations. This range of technical assistance includes but is not limited to: grant management technical assistance and monitoring; resource identification and management; grant application development support; recovery and resiliency planning facilitation support; hazard mitigation planning technical assistance; hazard identification and risk assessment; integrated hazard mitigation and land use planning assistance; development of model land use codes that account for specific hazards (currently in progress); business technical assistance and continuity planning support; assistance in the formation of long-term recovery groups and disaster case management processes; watershed master planning; facilitation and support for the formation of watershed coalitions; floodplain mapping, hydrology and hydraulics analysis; engineering, design and architecture support for watershed, infrastructure and public facilities projects; federal and state permitting for recovery and resiliency projects; and, support with environmental and historic preservation reviews (National Environmental Policy Act, National Historic Preservation Act, Executive Order 11988). Capacity to Establish the Colorado Resiliency Partnership Investment Fund: The State of Colorado currently manages a range of highly capitalized revolving loan funds and has robust systems in place to underwrite and administer loans to public, private and non-profit entities. Departments currently managing revolving loan funds include the Department of Local Affairs, Department of Public Health and Environment and the Department of Natural Resources. In particular, the Department of Local Affairs currently manages a revolving loan fund that includes
Page 19
CDBG-DR funding. Likewise, the State of Colorado has established a range of innovate publicprivate partnerships, including management of highways. The State also has significant experience in establishing and partnering with external nongovernmental organizations to implement projects. In 1990, then Governor Roy Romer created the Great Outdoors Citizens Committee1. The committee, which included representatives from the conservation, business and political arenas from across Colorado, issued a series of recommendations to enhance Colorado’s outdoor resources. One of the committee’s recommendations was to create a trust fund to sustain long-term outdoor recreation preservation and enhancement activities. The Great Outdoors Colorado Trust Fund was created through a constitutional amendment in 1992. GOCO continues to partner closely with the State of Colorado, and serves as a model for Colorado of partnership among state government, local government, non-profits and businesses. Capacity of Partners. Colorado and its partner agencies, businesses, nonprofits and other jurisdictions have ample expertise and capacity to plan and implement the NDRC funded projects. Below is a brief overview of Partner capacities. Many of the partners also have additional capacities that are not reviewed here because of space constraints. Governor’s Office (GO). The Governor of Colorado serves as the state’s chief executive and is responsible for the overall direction of State government and Colorado’s recovery process. Colorado Recovery Office (CRO). CRO, led by the Governor’s Chief Recovery Officer, is responsible for setting the overall priorities and direction for the recovery from the 2013 floods, and is coordinating state-wide resiliency efforts. The Office maintains expertise in and capacity to assess ongoing disaster recovery unmet needs, federal / state fund management, project 1
http://www.goco.org/about-us/history
Page 20
analysis and planning, zoning / land use, housing development and coordination with state, federal, local, and non-governmental agencies. CO Dept. of Transportation (CDOT). CDOT maintains expertise in multiple areas including road construction management and maintenance or repair, snow and ice operations, traffic monitoring, avalanche control, rock fall mitigation, transit development and grants, traffic safety education. CDOT also provides expertise in researching environmental issues, cost-effective asphalt applications, and designing multimodal facilities, among other areas. CDOT, and the Colorado Water Conservation Board have developed an innovative partnership as a part of the 2013 Colorado Flooding Recovery process to rebuild destroyed roadways, and restore watersheds in concert. This effort has resulted in improved geomorphology and more resilient roadways that will better withstand future flooding events. CO Dept. of Natural Resources (DNR). DNR’s mission is to develop, preserve and enhance the state's natural resources for the benefit and enjoyment of current and future citizens and visitors. DNR provides leadership to the Colorado Avalanche Center, the Parks and Wildlife department, the State Land Board, the Conservation Board, Forestry, and the Divisions of Reclamation Mining & Safety and Water Resources Colorado Water Conservation Board (CWCB). CWCB, an agency within DNR, maintains expertise in a broad range of programs including water conservation, flood mitigation, drought planning, watershed protection, stream restoration, water supply planning and water project financing. CWCB has developed and adopted statewide Rules and Regulations for Regulatory Floodplains that serves to make Colorado and communities more resilient to future disaster events. Likewise, CWCB is leading critical efforts to fund the watershed master plans. CWCB initiated the formation of Watershed Coalitions in September 2013, which led to the creation of Page 21
watershed master plans that identify projects for regional disaster mitigation. This process provided a template for the regional collaboration pursued by the Framework. These coalitions are made up of public sector, non-governmental, private sector stakeholders, along with individual landowners. Division of Homeland Security and Emergency Management. (DHSEM). DHSEM maintains expertise in response and recovery from all-hazard events including acts of terrorism.
DHSEM
specifically assists local jurisdictions with training and exercise support, improved coordination and planning, developing / refining resource management systems, enhancing local emergency management information technology infrastructure and organizing effectively for appropriate disaster response. DHSEM manages the FEMA Public Assistance Program and serves as the program lead for the State’s CDBG-DR Infrastructure Program. CO Dept. of Local Affairs (DOLA). DOLA is responsible for working daily with local communities. DOLA provides comprehensive support to local governments, including financial and technical assistance related to infrastructure, land use, housing and other community development services. DOLA serves as the fiscal and administrative agency for the State’s CDBG-DR program, which involved development of a multi-disciplinary, regional planning program. This approach helped pave the way for the Framework. DOLA works with local governments to ensure fair housing and uphold civil rights. CO Dept. of Public Health and Environment (CDPHE). CDPHE maintains expertise and capacity in disease prevention, health statistics, health facilities’ regulation, behavioral health laboratory and radiation services, emergency preparedness, air and water quality protection and improvement, hazardous waste and solid waste management, pollution prevention and environmental leadership. Page 22
CO Geological Survey (CGS). CGS maintains expertise and capacity in geologic assessments, mineral, energy and water resources. They are currently undertaking efforts to develop debris flow maps in areas impacted by the 2013 floods, landslides and mudslides. CO Office of Economic Development and International Trade. OEDIT provides a range of disaster recovery and resiliency services to local businesses, chambers of commerce, economic development councils and other economic stakeholders. OEDIT is currently administering the State’s CDBG-DR economic revitalization program. Colorado Energy Office (CEO). CEO improves the effective use of Colorado’s energy resources by providing technical guidance, financial support, policy advocacy and public communications. CEO has provided a range of recovery and resiliency support activities, including technical and financial assistance for weatherization and energy efficiency of flood impacted homes, and with energy performance contracting for infrastructure activities. CO Association of Stormwater and Floodplain Managers (CASFM). CASFM maintains expertise and capacity in stormwater and floodplain management and represents more than 700 public and private sector floodplain management professionals. University of Colorado, Denver (UCD). UCD offers national expertise in areas including urban and regional planning, emergency management, hazards geography and social vulnerability. UCD – a critical partner to the state – has provided local recovery and resiliency planning technical assistance, and is currently working with the Department of Local Affairs and CRO on the development of model land use codes that integrate hazard considerations. County/City Jurisdictions. Counties partnering in this program include Boulder, Larimer, Weld, Jefferson and El Paso. Counties, cities, towns and special districts serve in the front lines of the long-term recovery and resiliency process. Communities are responsible for implementing Page 23
recovery and reconstruction projects, and are managing recovery grants from numerous federal and state agencies, including but not limited to FEMA Public Assistance, CDBG-DR, Natural Resources Conservation Service Emergency Watershed Protection Program, and multiple state programs. Local jurisdictions work with DOLA to ensure fair housing and uphold civil rights. American Red Cross (ARC). ARC is a world leader in preparing for disasters, responding to disasters, transportation for critically ill and elderly, training courses on lifesaving, health and safety for first responders and public. Working Across Disciplines. Colorado has experienced four presidentially declared disasters since 2012: the High Park and Waldo Canyon Fires (DR-4067), the Royal Gorge Fire (DR4133), the Black Forest Fire (DR 4134) and the 2013 severe storms, floods, landslides and mudslides (DR 4145). Through constant coordination, work, determination and leadership, communities and the State of Colorado have made great strides towards recovering from these disasters and building resiliency. The Colorado Resiliency Working Group (CRWG) and resulting Framework are examples of the State’s capacity to work across disciplines. The Framework will not only broadly impact resiliency statewide, it will also provide the goals, templates and tools for impacted communities to implement multi-disciplinary collaboration at the local level through the Local plans described in Exhibit D. The section below identifies specific Partner capacities. Specific Capacities. CRO, DOLA, CDOT, CWCB, OEDIT, FEMA, DHSEM and the Governor’s Office have experience with area-wide / comprehensive planning, large / complex programs / projects. They also collectively maintain capacities in data analysis, public works, affordable housing, environmental quality, community engagement, design and engineering, affordable housing, economic revitalization, and other relevant capacity to quickly launch and Page 24
implement a major project. The Governor’s Office (GO), CRO, CWCB, DHSEM, CDPHE, UCD and CDOT maintain capacity to identify and assess science-based information on existing and future risks from climate change, assess and address possible future conditions and risks and possible benefits and outcomes, including resilience, of project(s) or program(s) over their lifetimes. DOLA, UCD, GO have experience with civil rights and fair housing issues. CRO, OEDIT, FEMA CDPHE, CWCB, CASFM all have experience and capacity to ensure excellent design quality that enhances long-term resilience. CRO, CDOT, CWCB, DHSEM, CDPHE, CEO, DOLA have capacity to assess project costs reasonableness, cost-benefit and/or cost efficiency. Partner Attrition Backup. CRO has incorporated in this project plan multiple partners with overlapping expertise and capacities so that in the event of the loss of any one partner the capacity is not entirely lost. Because this is a statewide process with local planning that benefits the entire state, it is unlikely any of the identified partners will be dropping out. c. Community engagement capacity. Capacity to Engage Stakeholders. Public engagement and transparency have served as a cornerstone of the State and local recovery process since the onset of the wildfires and floods. The State has undertaken the development of its Action Plan and a subsequent Substantial Amendment. For each process, the State conducted four in-person stakeholder meetings and a webinar during the drafting stage of the process, and 4 additional public meetings and a webinar once a draft of the action plan or substantial amendment was completed. Translators and sign-language interpreters were provided for all in-person meetings. The Colorado Recovery Office is now undertaking a public outreach process that connects and engages a diverse cross-section of Coloradans with a unifying theme of resiliency. Key stakeholders and individuals have provided input to the Colorado Resiliency Framework plan Page 25
(Framework) through targeted research, interviews and interactive focus groups further described below. The Framework planning process is directed by the CRO through the leadership of the CRWG and further supported by six subcommittees that include approximately 154 stakeholders in the areas of: community, economy, infrastructure, watersheds and natural resources, housing and health and social services who work to create sector specific and cross sector resiliency strategies as further described in Exhibit E.a. (Consultation) and in Attachment D. The State has also initiated a process to educate the public, and to capture best resiliency practices through the “I/We Are Resilient” social media and grassroots campaign that can be found at the Colorado United website. As noted above, several outreach and engagement methodologies are being utilized to cast a wide net and develop a comprehensive understanding of public needs, concerns and ideas. To reach a wide and yet targeted representation, audiences are segmented into two primary categories: geography that correlates with severity of impact from the most recent disasters on communities; and discipline, to engage key stakeholders and areas of expertise for a broad and diverse reach. Implementing Feedback into the Colorado Resiliency Framework and CDBG-NDR. In Phase 1 of the NDRC application, Colorado has incorporated stakeholder input derived through the Framework planning process into its preparation, and has made this proposal available for public input. Public feedback will be incorporated into the application prior to its submission. Prior to the NDRC Phase 2 submission, the Local plans will be completed and will have incorporated the concerns and needs of local stakeholders and affected groups. The Local plans will focus on areas most affected by recent disasters, and most vulnerable to future disasters. This local participatory planning process will guide the NDRC project selection process. Another public hearing and comment period will also be provided for the Phase 2 project Page 26
proposal and application process, and feedback will be incorporated into the application prior to submission. Outreach Methodology: To humanize the public outreach process and educate residents, the CRO has launched the “WeAreResilient” Campaign in tandem with ongoing research. The campaign will engage the public through: Storytelling - Colorado’s Unsung Heroes (video), and Public Recognition of Colorado’s Everyday Heroes (www.ColoradoUnited.com/Resilient). The ColoradoUnited.com website describes the efforts undertaken, proposals / programs being developed, provides status updates on various activities being undertaken by the CRO and the State of Colorado and allows the public to provide feedback. The strategic discussions and public input that has occurred through all the methods described above are directly influencing the content and development of the Colorado Resiliency Framework and its strategies, which will serve as guide for the local planning processes and ultimately the selection of projects to be supported through the Fund. Engagement Resources. To facilitate outreach and education, CRO has contracted with Atomic20 (marketing agency) for community engagement services to support the development of the Colorado Resiliency Framework. CRO’s Communications Director, an experienced and full-time professional, manages the overall process in direct consultation with the CRO leadership. The 10-month long Framework planning process has been a driving force and key influence behind the development of Colorado’s NDRC strategy. Outreach specific to the NDRC application was conducted by the CRO, coordinated and connected to the CRWG and the Framework development process. Harmonizing the contributions of diverse stakeholders and community leaders. As described herein, the community engagement process that has been ongoing since the Qualified Page 27
Disaster of 2013 has harmonized contributions of diverse stakeholder by convening subsector committees with representation from the groups described above and in Exhibit E.a. This process involved both formal leaders (i.e. agency staffers (other examples)) as well as volunteers from the community who stepped forward to provide input and leadership. Collaboration with diverse stakeholders and community leaders has been integral to the CDBG-DR and the Colorado Resiliency Framework planning processes, as described in Sections b. and d. of this Exhibit C and Exhibit E.a (Consultation). d. Regional or Multi-governmental Capacity. Over the two years since the State of Colorado experienced the most devastating natural disaster in its history, a regional approach to recovery and resiliency has been a standard practice. As part of its initial response to the 2013 floods, the State formed CRO that organized the CRWG to better coordinate recovery and resiliency planning among 27 Federal, State, Local and non-governmental government agencies and organizations. Watershed Resiliency. The 2013 flood disasters have led to an innovative disaster recovery approach— the Watershed Coalitions and master planning. Understanding that natural systems and related disasters transcend political boundaries, the State of Colorado collaborated with a broad spectrum of participants to re-organize resources by watershed region, called “Watershed Coalitions”. These nine Watershed Coalitions are composed of local, state and federal government agencies, individual landowners, businesses and nonprofits. They have created 11 Watershed Master Plans, funded by Colorado Water Conservation Board grants. The plans present a vision and prioritized list of multi-objective, holistic projects that are customized to the unique natural conditions of each region. To carry forward this multi-stakeholder, regional watershed master planning into implementation, the State created the Watershed Resiliency Pilot Page 28
Program (Pilot) through it’s CDBG-DR allocation. Master plans have identified more than $560 million in watershed recovery and resiliency needs – only a fraction of which will be addressed through the Pilot program. As such, the Watershed Master Plans will also help prioritize projects funded by CDBG-NDR that not only respond to environmental degradation, but also position regions for greater long-term sustainability. Colorado Resiliency Framework. The CRWG has led the development of the Colorado Resiliency Framework plan (Framework). The Framework is a state level planning process that was initiated in July 2013 and will be completed by May 30, 2015. For the development of the Framework, the CRWG formed six sub-sector committees, each led by a member of the CRWG with the goal of engaging key stakeholders in critical areas to develop problem statements, priorities, goals and strategies and create metrics. The sub-sector areas include: community, economic, infrastructure, watersheds and natural resources, housing, and health and social services. A cross-sector working meeting was also held and ongoing efforts are being made to encourage the development of strategies with multiple benefits. The CRO has guided the community outreach process with assistance from FEMA, Ecology and Environment, Inc., and Atomic 20. A total of 154 stakeholders are directly involved in the CRWG or subcommittees, representing a diverse cross-section of perspective and expertise from business, citizen, government and non-government sectors. The Framework planning process also includes a risk analysis task force that includes climate science and other experts to guide development of a Risk and Vulnerabilities Assessment. Risk and Vulnerability Assessment. The State has initiated the development of a Risk and Vulnerability Assessment. The first phase of the assessment will be a chapter in the Colorado Resiliency Framework that leverages a series of detailed technical reports, including the Page 29
Colorado Natural Hazards Mitigation Plan, local hazard mitigation plans, and climate analyses developed in partnership between the State of Colorado, NOAA, and the University of Colorado. The analysis also examines social and economic vulnerability and resilience indicators to assess not only threats but ongoing vulnerabilities from shocks and stressors. Over the course of the next 2 years, the State intends to undertake a larger effort to develop a geo-spatially based tool that identifies hazards, critical assets, and long-term development trends and provides communities with an open-source based risk management tool to support local development decisions. The tool will be accompanied by hazard-specific model land use codes that are currently under development. The Risk and Vulnerability Assessment will help identify CDBGNDR projects, as further described in Exhibit D. Local Resiliency Strategy Plans. The Framework plan and collaborative process demonstrate state level commitment and leadership, and have created a model for the development of Local Resiliency Strategy plans (Local plans). The Local plan development process will be piloted during the summer of 2015 using Colorado’s third tranche of CDBG-DR and private foundation funds. The Local plans will engage localities in resiliency planning for their future adaptability and develop strategies while also serving as a catalyst for driving broader policy and societal changes at the local level. In addition, they will incorporate the Risk and Vulnerability Assessment described above. The Local plans will also guide prioritization of projects to be included in the NDRC phase II application. The local areas that will participate in the pilot planning process will be chosen based on areas with the highest level of need and a proven capacity to manage the process and its outcomes. Ultimately, the State intends to identify support for the development of Local plans for all of areas within the State of Colorado to create
Page 30
a long-term locally based understanding and actions that will reduce the threat of future events and ongoing adaptation to changing conditions. As the most recent disaster demonstrated, severe flooding is a serious future threat that impacts multiple localities with one event. These impacts are most often tied to geographyrivers, streams and valleys that are shared by many different communities. Likewise, interventions will carry collateral benefits to multiple communities that share the impacted geography. For example, riverbank restoration or reforestation adjacent to one community will also benefit other communities downstream. The Local Resiliency Strategy planning approach was developed with an understanding that local solutions create lasting change and direct benefit to community. Each plan process will be administered by a local entity with management capacity; a steering committee with multi-disciplinary, multi-jurisdictional, public and private membership; and include subsector committees similar to the Framework plan structure. Each subcommittee will engage key stakeholders and focus on one of the following topics: community, economy, infrastructure, watersheds and natural resources, housing, and health and social services. Each Local plan will involve: an existing conditions inventory and needs assessment; a risk and vulnerability assessment; community resiliency indicators; strategy development; project identification and prioritization; and a public engagement process. The CRO will provide a toolkit and resources for the local planning processes that will include local and nationwide best practices, and statewide resiliency indicator data and risk assessment tools. As described above, the Local plans incorporate a comprehensive, multi-disciplinary approach to assessing risk and building local resiliency. This includes an assessment of risk to economy, housing, health and social services. With a focus on these topics, the planning process addresses the uneven impacts of natural disasters to vulnerable populations, including lowPage 31
income households, racial minorities, persons with disabilities and seniors who are often hard to reach in mountainous and rural areas. Case workers from Long-Term Recovery Groups/Disaster Case Management agencies have already been engaged in focus groups and interviews summarized in section C.b. Additionally, representatives from organizations that serve vulnerable populations, including the United Way, the Salvation Army, Lyons volunteers, Calvary Baptist Recovery Relief, Calvary Relief at the River Church, and Rocky Mountain Conference of the United Methodist Church, participated in focus groups and expert interviews. These agencies and local churches, schools and other trusted community organizations will continue to be contacted to solicit their assistance in reaching the most vulnerable populations and identify their needs and challenges – not only for the NDRC, but for the long-term recovery and resiliency process. All meetings will be held in accessible, familiar locations and at times convenient for working families and individuals. The CRO has already successfully implemented $1 billion for recovery projects through a multidisciplinary, multi-jurisdictional, regional approach, coordinated with the State Department of Local Affairs. The CRO will continue the recovery program as it moves into its resiliency stage by collaborating with the CRWG. These entities have established institutions and planning processes for sustained resiliency, such as the existing Watershed Resiliency Pilot Program that will also serve as a guide for the planned Local Resiliency Strategy Plans. In this way, the State of Colorado has created long-term administrative capacity for overcoming the challenges unique to Colorado’s waterways, applying a holistic approach to its ecosystems. This capacity is now being built at the local level for lasting solutions that will be imbedded into local decisionmaking.
Page 32
Exhibit D - Need State of Colorado NDRC Application
Page 33
Exhibit D - Need HUD-Designated Most Impacted Counties. The State of Colorado has three counties that HUD designated as Most Impacted Counties (see Appendix B)— Boulder, Larimer and Weld Counties. Each of these three counties demonstrated Unmet Need for Infrastructure, with more than $400,000 in unfunded permanent infrastructure repair needs. In total, these three counties have $75.7 million of permanent infrastructure repair needs. HUD-Designated Most Impacted Sub-County Areas. The State of Colorado also has two Census Tracts (8059009808 & 841006700) that HUD designated as Most Impacted and Distressed census tracts. Each of these Census Tracts demonstrate Unmet Needs for Infrastructure with more than $400,000 estimated in unfunded permanent infrastructure repair needs (See Exhibit B). Locally-Demonstrated Most Impacted and Distressed Sub-County Areas. In addition, the State of Colorado has demonstrated with local data that four sub-county areas are Most Impacted and Distressed with Unmet Needs— Census Tracts 108041007500 & 108041007602, 108041003707 & 108041003708, 0841006700, and 08041003400 (see Exhibit B). Overall Unmet Need. Colorado communities have been very fortunate to receive incredible financial and technical support from federal and non-governmental agencies. However, the size and scope of recent disasters has been such that the resources provided cannot meet all of the needs created by the disasters. The table below summarizes statewide damages and Unmet Need. The data was collected through the development of the State’s CDBG-DR Action Plan and Substantial Amendment, as well as ongoing outreach to local governments, watershed coalitions, businesses, housing authorities and others. Infrastructure impacts and unmet need include nonfederal match for programs such as FEMA Public Assistance and Federal Highways Page 34
Administration Emergency Relief, as well as recovery and resiliency projects identified locally that do not have funding sources committed yet. Watershed impacts were identified through the watershed master planning process discussed in Exhibit C.d. The methodology for identifying housing and economic impact is described in the State of Colorado’s CDBG-DR Action Plan. Infrastructure
Watersheds
Housing
Economic
Total
Impact
$2,193,765,083
$592,196,282
$623,320,619
$556,134,872
$3,965,416,856
Need
$1,104,287,115
$551,801,965
$301,065,957
$428,811,876
$2,385,966,913
*The State is undergoing an additional unmet needs analysis for the third allocation of CDBG-DR. Unmet needs numbers are subject to change.
Needs Analysis. The State of Colorado has developed a multi-faceted approach for addressing the unmet need of the most impacted and distressed target areas and the entire disaster impacted areas; and, for resiliency to future natural disasters and the potential impacts of climate change throughout the State. The state and local communities will develop and adopt Local plans that address housing, infrastructure, environmental, economic, health and social and community resiliency strategies. Out of these Local plans, the State of Colorado anticipates requesting funding from CDBG-NDR to support priority housing, infrastructure, and environmental resilience related projects that will be funded through the newly created Colorado Community Resiliency Partnership Fund (Fund). As described in Exhibit F, the Fund will provide a majority of CDBG-NDR funds as grants to priority projects and reserve a portion as seed capital for a loan program that will leverage other state, federal, private and non-governmental capital for long term sustainability of the Fund. The comprehensive, science-based risk approach used to analyze the needs addressed by the Colorado Resiliency Framework includes the following components: Page 35
Needs Assessment: A holistic assessment of what needs are not being met by existing projects, programs and funding sources across all subsector areas. This assessment will include issues or challenges to be overcome to address these needs and will address both the existing declared disaster unmet needs and future threats. It will also assess low income needs for each locality in order to meet the NDRC requirement of using at least 51% of CDBG-NDR funds to assist this population.
Risk and Vulnerability Assessment: Utilizes statewide data that draws from existing sources, State and Local Hazard Mitigation Plans, and FEMA, CRO and CRWG Resiliency and Vulnerability Indicators to identify risks and vulnerabilities. This data also draws from the Colorado Climate Change Vulnerability Study.
Community Resiliency Indicators: Indicators in the plan will include what should be measured, how it will be measured and the unit of measurement. These measures will be used to create a baseline understanding of current condition and to set targets for an ideal future condition to be achieved through actions in the Framework and local plans. A list of resiliency indicators will be provided as an outcome of the Framework process that includes both required common indicators that the state and all local areas will utilize and other indicators to draw from for local use to ensure consistent measurement for future benchmarking and progress toward targets for evaluation purposes. Benefit Cost Analysis. Qualified projects must meet a risk and resiliency assessment to guarantee that the benefits of the projects exceed the investments made to implement projects. Likewise, projects must meet multiple-objectives and enhance the resiliency of the region rather than an individual political subdivision. The benefit-cost analysis process will be modeled after two existing tools implemented in Colorado: the Risk and Resiliency Assessment implemented Page 36
by the Colorado Department of Transportation (see Attachment E), and the Comprehensive Risk Analysis tool utilized for the Community Development Block Grant – Disaster Recovery Infrastructure Program. Specifically, projects will be prioritized based on their score in meeting criteria in areas that may include: Economic cost-benefit analysis; technical soundness; create multiple benefits that address needs identified in the Framework and Local Resiliency Strategy plans; long term and lasting impact; inclusion of adaptive capacity allowing for flexibility to changing needs; benefit to disadvantaged and most vulnerable populations; address areas of high risk and vulnerability; and innovation in approach, design or strategy to advance best practices. Vulnerability Identification. As a result of the impacts of the severe flooding and fires that occurred in 2012-2013, the State identified the following major impacts, vulnerabilities and resiliency needs: Infrastructure/Hazard Mitigation: Damaged and destroyed roads, bridges, water and wastewater systems, damaged and destroyed utilities and public facilities; Housing: Damage to single and multi-family housing in markets with already low-vacancy rates and high cost of living which significantly impacted low-moderate income and socially vulnerable populations; Watersheds and Natural Resources: Damages to rivers, creeks, irrigation infrastructure and entire watersheds from erosion and scouring, debris flows, channel migration, as well as denuded and hydrophobic hill slopes as a result of wildfires. This has led to the need for multi-objective watershed restoration including flood mitigation, multi-use greenways, and restoration of ecological function of watersheds. These needs were identified through continuous partnerships with local communities, the development of the State’s CDBG-DR action plan, and the deliberations of the CRWG. The State, in partnership with local communities has analyzed a host of risk and vulnerability Page 37
information to develop the Framework and its application to CDBG-NDR. Data sources have included: damage, engineering and technical reports from recent disasters; the Colorado Natural Hazards Mitigation Plan and local hazard mitigation plans; the Colorado Wildfire Risk Assessment Portal; the Colorado Climate Change Vulnerability Study; and Climate Change in Colorado: A Synthesis to Support Water Resources Management and Adaptation. Additionally, through an innovative partnership between the Colorado Department of Natural Resources and the Colorado Department of Transportation, the State is in the process of developing new hydrology reports for flood-impacted watersheds in order to more accurately understand risk from flooding. This hydrology is already being used in the design of recovery and resiliency projects to ensure that projects are designed to meet and withstand current and future threats. Risks From a Changing Climate. Two recent in-depth climate studies, developed in partnership between the State of Colorado, Western Water Assessment, University of Colorado, and Colorado State University indicate that over the past 30 years, Colorado’s Climate has warmed 2.5 degrees and is projected to warm an additional 2.5-5 degrees by 2050. This warming has already resulted in impacts like increases in the frequency and severity of drought and wildfires and a shift to an earlier spring runoff. While declining streamflows and water availability challenges are a concern, and there has been no long-term trends related to heavy precipitation events, increases in annual natural streamflow are possible and nearly all models show an increase in winter precipitation. In short, Colorado's highly variable climate is likely to continue into the future, including susceptibility to extreme precipitation and flooding events. Recovery and Revitalization. Risk assessment and planning for future resiliency is a cornerstone of Colorado’s recovery efforts from recent floods and wildfires. As noted in the State’s CDBG-DR Action Plan, the State has utilized the following guiding principles in the Page 38
development of disaster recovery programs, and in funding decisions: risk-informed decision making; equitable, affordable housing options; enhanced economic competitiveness; coordinated and streamlined policies; leveraging of investments; greater harmony between natural systems and the built environment; support and value of communities and neighborhoods; and providing transportation choices. Disproportionate Risks. Disproportionate risks can range from direct risks to properties in hazardous areas, to indirect impacts such as lost jobs due to disaster related business interruptions. These impacts have been a reality for Coloradans in recent disasters including both wildfires and floods. Communities with tourism-dominated economies have seen businesses contract or close, and workers lose jobs. Often, low-income workers are the first to lose their jobs. Low income housing was damaged or destroyed in multiple communities. Access to services can at times be difficult, either due to awareness, language, mobility challenges or other access and functional needs. Low vacancy rates and high cost of living resulted in some having difficulty finding affordable permanent housing in their communities. Through both recovery programs and the resiliency framework, the State seeks to not only identify areas and issues of disproportionate risk, but also to identify and implement specific strategies to support and empower resilience for vulnerable populations. Existing Conditions. As has been made clear through recent disasters, studies, and recent surveys conducted by the Colorado Recovery Office, Colorado communities face a variety of threats, including floods, wildfires, winter storms, drought, landslides and debris flows and tornados. Because of its beauty, vibrant economy and way of life, Colorado has also experienced significant growth, leading to increased cost of living, lack of affordable housing, development pressures in areas of Wildland Urban Interface, and rising demands on natural resources and Page 39
water. Trends in climate volatility may exacerbate some of these vulnerabilities. The State of Colorado, through thoughtful planning – including the development of the Framework - and through innovative implementation - continues to identify ways to reduce risk, improve environmental quality and enhance community and economic vitality, and preserve and protect our unique quality of life.
Page 40
Exhibit E – Soundness of Approach State of Colorado NDRC Application
Page 41
Exhibit E - Soundness of Approach a. Consultation. The State undertook a robust public engagement process to develop the Colorado Resiliency Framework that also serves to inform the NDRC. That engagement process included 5 key components: 1) surveys; 2) focus groups; 3) expert and stakeholder interviews; 4) social media education and engagement campaign; and 5) public hearings. The State has consulted with 59 different groups through this process, as listed in Attachment D. Between December 11, 2014 and January 21, 2015, a total of 7 Focus Groups have been held in 5 locations (Boulder County, Larimer, Weld, El Paso and Garfield Counties) with 62 key stakeholders to-date from local government, community- and faith-based organizations, community leaders, home owners, business owners, health and service agencies, home builders, and commercial developers. The purpose of the Focus Groups was to identify local community development objectives related to natural disaster issues. Of the communities represented, 40% were rural, 16% were urban and 38% were both rural and urban. In addition to strategic, small group discussions, community members were reached through various methods, including the Framework pamphlet distributed through verbal briefings and email questions. The focus groups were successful in drawing important conclusions directly related to natural disasters in the communities. Of the communities represented, 65% had experienced a disaster over the past 10 years. First, participants discussed the meaning of resiliency for their community. The focus group participants also gave their opinions on the top hazards that could impact communities, where 97% considered winter storms as the most severe hazard, followed by flood, drought and wildfire. Participants stated that 42% of their communities have hazard specific codes, including 1) flood plain regulations; 2) hazard mitigation – flood and fire; and 3)
Page 42
building codes. This is identified as an area of opportunity for further progress in local resiliency planning. The focus groups identified vulnerabilities at the local level, priorities and perceptions around community resilience, and long-term community development objectives. The community development objectives included strategies to mitigate disaster impacts to vulnerable and low income populations, and build resiliency in a range of interdependent local characteristics, including housing, transportation, and economic development. The focus groups came to conclusions on the top priorities over the next 10-20 years, which are as follows: 1) Economic Development; 2) Jobs and economic growth; 3) Infrastructure upgrades and 4) Sustainability. The focus group stakeholder discussions and conclusions have been a key component in developing the Framework. A major finding from the focus groups was an identified need for a long-term sustainable funding source for resilience. b. Key Ideas/ Concepts. Rather than invest solely in projects that are reactive, or in projects that simply build back to what existed before the disaster, Colorado’s goal is to thoughtfully and comprehensively plan for and implement resilience strategies that result in a more adaptive and resilient future. Through state and local based planning processes and public engagement, Colorado continues to assess risks and needs, set goals and establish indicators to measure progress. All of this leads to the development of tangible and actionable resiliency strategies that will guide recovery efforts, as well as the daily business of State agencies and local communities into the future. Colorado’s planning processes and strategy will serve as a framework to guide future public investment and the foundation for the creation of long-term community resiliency investment fund. In this way, Colorado’s resiliency planning approach goes beyond recovery
Page 43
projects by making systemic change that will establish processes, relationships and institutions that will benefit the State far into the future. Thus, Colorado’s NDRC strategy is centered on translating planning into action through the creation of the Colorado Community Resiliency Partnership Fund (Fund), seeded with CDBGNDR funds and capitalized with other private, foundation and government funds. The fund will provide support for CDBG-NDR priority projects identified through the Local planning process. The Local plans in turn will be guided by the Colorado Resiliency Framework, Watershed Master Plans, other local recovery and resiliency planning efforts and the Risk and Vulnerability Assessment. The Fund will leverage NDRC funds through a public-private partnership to ultimately serve as a long-term, stable source of grant and loan funds for community-based resiliency projects in declared disaster impacted areas, and eventually throughout the State of Colorado. Focus groups and stakeholder interviews held during the Framework planning process have reinforced the need to foster and empower a culture of resilience for Colorado’s citizens, governments, businesses and community organizations. Colorado’s planning process is intended to go beyond the prioritized projects to make resiliency and adaptive capacity an everyday way of life and practice that changes the definition of “business as usual”. This deeper cultural shift in decision-making started with the creation of the multi-disciplinary and collaborative CRWG that led development of the Framework, and is steering the Risk and Vulnerability Assessment. Together, these actions have identified the need and laid the groundwork for the Local plans. The CRWG, its engagement process and the resulting outcomes demonstrate leadership at the state level, represent a long-term commitment to a culture of resilience and provide a model for communities and other States to follow. Page 44
The Framework is just the beginning; this state-wide plan will serve as an actionable strategy, as well as a guide for the development of bottom up, Local plans. These Local plans will identify unmet community needs and utilize state risk and vulnerability data to engage the community in a project prioritization process. This approach ensures that the needs of the most vulnerable and hard to reach populations are heard and addressed within the local project prioritization process. The project prioritization process for will utilize criteria that is derived from the Framework plan and the Local plans that are informed by a robust public engagement process and scientific risk and vulnerability analysis. Addressing the Most Vulnerable. Evaluating and addressing the needs of the most vulnerable is a core concept of the Colorado Resiliency Framework and future resiliency implementation activities. In particular, the Health and Social and Housing sectors are charged with evaluating and identifying strategies to address needs for low-moderate income and other vulnerable populations. The sub-committees are evaluating strategies that range from affordability and accessibility of housing to community connectedness, social capital, and mental health support and resources. Additionally, as a part of the plan development process, the CRWG partnered with FEMA to develop a statewide social and economic vulnerability and resilience index that provides additional perspective and data to drive the strategy development process. Local plans will be required to include the evaluation of health and social sector vulnerabilities and needs and identify strategies as a part of the local planning process.
Resilience Comprehensive and Inclusive Planning Process. The Local planning process will be guided by the vision, goals and objectives of the Framework. Likewise, communities will utilize the subsector categories established in the Framework as a starting point to plan for Page 45
whole-of-community solutions. Those sectors are: housing, infrastructure, watersheds and natural resources, economic, health and social and community. The Framework will provide support to localities as they engage in the planning process, with model templates, baseline indicator data, statewide risk assessment, and public engagement and planning consultants. In recognition that true resilience depends on addressing the community as a whole – not simply just the built environment - communities will identify a holistic and comprehensive range of strategies that address needs across the above-identified sectors and work to identify projects with multiple benefits that will be supported through the Fund. The Framework planning process includes representatives from all relevant state government agencies working with stakeholders and experts on each topic area, all with a statewide focus for the development of comprehensive, cross-cutting strategies. The Local planning process will build on the foundation established with the Framework plan. Local stakeholders will come together for two intensive, charrette-style working sessions. The first will be informed by risk and other baseline data and trends to identify remaining needs and challenges, and to develop cross-cutting strategies for each local area. A second working session will focus on the identification and prioritization of projects and strategies based on priority needs and criteria established during the first working session. As with other outreach efforts, these working sessions will inform Colorado’s overall resiliency planning process, a portion of which incorporates NDRC projects. Participants in the working sessions for each local area may include up to 100 people working in breakout groups and will include government representatives at all levels, community organizations, community and business leaders, and topic experts for working sessions. A special focus will be placed on inclusion of the most vulnerable populations through direct contact and with the assistance of service agencies and community organizations who have Page 46
trusted contact with these often hard to reach populations. Outcomes from each multi-day session will be presented and vetted at open, town hall style meetings at the end of each session and disseminated through media outlets. Resilience Strategies Incorporating Risks and Changes in Climate. Local plans will represent a long-term commitment by stakeholders engaged in the process. Through technical assistance, facilitation support and partnership, the State will work directly with local planning groups to identify a broad range of strategies, some of which will require significant monetary investment, and some of which will require staff time, cultivation of public-private-non-profit partnerships, and the evaluation and updating of plans, policies, and regulations. These strategies will include a focus on addressing ongoing vulnerabilities and risks associated with climate change. Strategy development will focus on the need to create cross-cutting solutions that are able to adapt to changing conditions and provide lasting protection from threats of all kinds whether they are sudden natural disasters of flood or fire, or the slower growing impacts of drought. A key aspect of local plans will involve production of affordable housing development that is energy efficient, properly located and designed, and integrates multi-purpose community centers and shelters. The placement of affordable housing is a critical planning component in this area, given the strong link between housing location and transportation costs (see the Center for Neighborhood Technologies housing and transportation affordability index map). As such, financial sustainability for the local economy, its workers and the environment are intertwined in Colorado. These are important strategies to mitigate the negative impacts of future disasters. Focus Sectors for CDBG-NDR Funding: Once Local plans are completed, the State will focus project funding on three particular sectors through the National Disaster Resilience Competition:
Page 47
Infrastructure/Hazard Mitigation – This will consist of locally prioritized strategies (many of which are already being implemented locally) including infrastructure retrofit, increased channel capacity, property acquisition, green infrastructure, and multi-objective infrastructure and watershed restoration projects. A special emphasis will be placed on projects that are multi-objective in nature, create or improve connectivity and broad community-wide benefit.
Housing – Housing resiliency projects will consist of the following principles – access and availability for low-moderate income and socially vulnerable populations, lowering the cost of living through innovative materials and design, including energy efficiency, partnering with the private sector to enhance innovation, and reducing risk from threats including natural hazards and changes in climate.
Watersheds and Natural Resources – Restoration of ecological function, appropriate geomorphology of watersheds, development of multi-use greenways (for transportation, recreation and flood hazard mitigation), enhancing recreation and outdoor related economic opportunity, and the implementation of proven bio-engineering methods to ensure long term resilience of watersheds.
Project Co-Benefits. Qualified projects must meet a risk and resiliency assessment to guarantee that the benefits of the projects exceed the investments made to implement projects. Likewise, projects must meet multiple-objectives (co-benefits) and enhance the resiliency of the region rather than an individual political subdivision. The benefit-cost analysis process will be modeled after two existing tools implemented in Colorado: the Risk and Resiliency Assessment implemented by the Colorado Department of Transportation, and the Comprehensive Risk Analysis tool utilized for the Community Development Block Grant – Disaster Recovery Page 48
Infrastructure Program. For more information on the CDOT risk and resiliency analysis and the State’s Comprehensive Risk Analysis methodology, please see Attachment E. Leverage and Timing. Colorado will leverage other funding sources for this planning process and CDBG-NDR funded projects as described in Exhibit F. Financing Mechanisms. Funding for resiliency activities will take place through the newly created Fund. It will receive seed funding from CDBG-NDR, to attract additional capital from other government agencies, foundations and the private sector entities that understand the value of investing in long-term community resiliency projects and programs. A majority of funds will be provided through grants to prioritized community projects. A portion of the projects will be supported through loan programs that leverage additional capital. All CDBG-NDR funds will be utilized in areas identified as most-impacted and distressed from qualified disasters for projects prioritized through the Local planning process. However, other state and private funding added to the fund will be available to fund statewide, cost-beneficial resiliency activities. Effects on Adjacent Areas. Because this proposal involves a local planning process, adjacent areas will be involved in the planning process and will participate in the prioritization process. Since each community has been involved in the planning of the projects for their area, each community with unmet needs project(s) will benefit from CDBG-NDR funding being granted for their project(s). Areas immediately surrounding projects will ultimately also benefit from improved economic and infrastructure conditions in the area, although it is possible that construction may in some locations cause temporary traffic congestion and noise during development. Areas surrounding project areas will also benefit from improved property values and improved economic conditions after the development is completed. As stated above, a requirement to qualify for project funding under by the funding mechanisms proposed projects Page 49
must meet multiple objectives (co-benefits) and enhance resiliency of the greater region rather than an individual political subdivision, thereby ensuring that selected projects benefit adjacent areas. By attracting capital from other funding sources, the State also seeks to expand the reach of the fund to meet the resilience needs of communities throughout the State. Local and Regional Interpendencies. The most impacted and distressed areas we are focusing on in this application all share interdependencies among the housing, transportation, economic, energy and watershed and natural resource sectors. The inclusive planning process will bring together representatives of each sector and interdependencies will be important criteria they consider in selecting strategies and projects for prioritization. Resolving Vulnerabilities Inside Colorado. Colorado continues to proactively address vulnerabilities within the State. Likewise, Colorado collaborates with neighboring states in many cases, for example through the Western Governor’s Association, the National Governor’s Association, and the Association of State Floodplain Managers. The collaboration and consultation described with this application is between the Colorado Recovery Office (CRO), other state agencies, local jurisdictions (counties), federal agencies (e.g. FEMA, etc.), nonprofit organizations (e.g. Red Cross, etc.) and private businesses. As described within this application, the CRO has been working with these partners since July of 2014 developing the Colorado Resilience Framework. Overall Approach to Resilience. As described herein, Colorado’s overall approach to resilience is to create an inclusive and evidence-based local planning process that addresses cobenefits, adjacent areas, multiple objectives and addressing the unmet needs, vulnerable populations and ongoing vulnerabilities across the focus sectors. The plan is designed for implementation – it will be a living document that is tracked and monitored. Similar to the Page 50
Colorado Resiliency Framework, the Local plans will create a lasting roadmap for the future that serves as a catalyst to creating lasting change in local policy, culture and projects. Through this process, projects will also be identified and prioritized – some of which will be supported through the Fund with CDBG-NDR funds.
Utilizing innovative financing mechanisms
described herein, Colorado will ensure that communities have access to funds for projects that meet these criteria now and in the future. NFIP Participation. All of the most impacted and distressed areas within Colorado participate in the FEMA Flood Insurance Program2. By changing the State’s planning approach to a more regional, interdependent, multi-disciplinary approach, the strategies described in this Exhibit are creating a roadmap for comprehensive long-term resilience. Through technical assistance, the State will also work with communities to identify potential opportunities to either enroll in the FEMA Community Rating System, or to improve CRS scores in those communities that do participate. Additionally, the State adopted Rules and Regulations for Regulatory Floodplains, which sets a higher standard for floodplain management and land use than those set forth in the NFIP. Those rules, which are required to be adopted locally, are in force in communities throughout the state.
2
See https://www.fema.gov/cis/CO.html for listing of participating communities.
Page 51
Exhibit F – Leverage State of Colorado NDRC Application
Page 52
Exhibit F - Leverage a. Outcomes. Program Length and Intensity. The Colorado Resiliency Framework will create a plan to guide future decision-making and include a set of strategies that will span the next 1015 years. The State intends to regularly update the framework to ensure that it meets the most current needs and priorities of the state. The Local plans will follow the model created by the Framework. The Local plans will utilize localized risk assessment data and needs assessment to develop localized strategies that will inform the prioritization of projects, policies and initiatives. This local planning effort will be the springboard for much needed cultural change and shift in decision-making toward adaptation and resiliency strategies that will have lasting impact well beyond the recovery from recent disasters. To ensure this effort is further implemented in the pilot areas and will be extended across the state, the Colorado Community Resiliency Partnership Fund (Fund) will be created. The Fund will use the CDBG-NDR grant funds as seed money to attract additional capital to the Fund and to implement projects identified through the Local plan project prioritization process. The Fund will include both grant and loan products and is planned to ultimately transition operation from the State of Colorado to a community based development organization or other non-government entity with capacity, and bylaws and requirements that will guarantee a lasting source of funds dedicated to resiliency planning, capacity building and projects for a minimum of the next 20-30 years. The goal will be to fully integrate resiliency strategies into the way business and government is conducted the State of Colorado and into the everyday lives and decisions of its citizens. Considered Infrastructure / Green Solutions. As part of its Framework planning process, the CRWG has encouraged cross-sector collaboration between subsector committees to identify Page 53
strategies that will offer multiple benefits. The infrastructure sub-sector committee and watersheds and natural resources sub-committee understand the importance of integrated solutions that protect and leverage natural systems such as green infrastructure. This notion is already in place in the State’s CDBG-DR Watershed Resilience Pilot Program. Additionally, these committees have developed some strategies for the Framework plans that address harmony between the built environment and watersheds, including the development of green infrastructure solutions. Co-Benefits. The criteria that will be used to select and prioritize projects for grants, and through the Fund in selecting projects to be supported will include a co-benefits requirement so that every grant-funded project must have at least one co-benefit in order to qualify and those containing more will achieve higher prioritization scoring, assuming all other factors are equal. As mentioned above, the cross-sector approach of the Framework subsector committees has ensured that diverse stakeholders are engaged and fully understand the value of achieving multiple benefits from one solution or project. The Local plan development process will follow a similar model to the Framework process with a strong emphasis on cross-sector collaboration and the use of project prioritization criteria that support projects with co-benefits. Environmental and Financial Sustainability. As described herein, the Framework and the subsequent Local plans together provide an inclusive planning process that brings together all the relevant stakeholders, communities and impacted residents across multiple sectors, disciplines and geographic areas. The Fund that will be created utilizing CDBG-NDR grant funds will attract additional capital for projects that emphasize triple bottom line returns, along with making smart investments that ensure the long term financial sustainability for the Fund. Projects that will be supported with the initial infusion of CDBG-NDR funds will be selected based on criteria Page 54
that include the degree to which the project addresses the needs of vulnerable and low income persons as one aspect of the triple bottom line returns to the community. Environmental sustainability is a core principle of Colorado’s recovery process, resiliency goals and the Framework. This is due partially to the great value placed in Colorado’s outdoor environment by its residents and its businesses who depend heavily on natural resources for agriculture, business and tourism. This aspect of the economy accounts for 107,000 jobs and $10 billion in annual economic input. Service workers are central to the success of this sector of the economy, and due to growth pressures that drive the high cost of living in some communities it can be challenging to find affordable housing in close proximity to jobs. The Fund, once established, is intended to provide a sustainable funding mechanism with affordable, cost effective loan repayment reinvestment strategy that will facilitate resiliency projects in Colorado communities beyond 2025 without additional capitalization needed. Evaluating Success. Success for Colorado means several things in different contexts. Success of the Colorado recovery process means that projects implemented not only build communities back, but that communities take the opportunity to build back stronger, safer and better than before the disaster. Success for Framework and Local planning process will be achieved when plans are adopted, implemented and the targets associated with the indicators have been achieved. Metrics will provide a critical measure for the desired future resiliency condition. Needs and strategies will evolve over time making prescriptive solutions an obstacle for creativity and application of new practices. Performance based measures through the use of indicators and targets allow for the integration of new approaches to meeting the targets. Adapting to fast changing conditions also requires that the plans include elements for implementation, updates and evaluation of based on community support and engagement. When Page 55
citizens are part of the process and own it, they will ensure its ongoing effectiveness. The level of local engagement and empowerment will also be a key qualitative element in evaluating ongoing success. Success of the Fund will be measured based on meeting fiscal responsibility requirements and achieving objectives that are aligned with the Framework and Local plan project prioritization criteria. Successful outcomes will first and foremost depend on the public-private partnerships forged to sustain the fund in the long term and enable it to expand to a statewide mission and reach. Additionally, success will be based on common reporting metrics such as progress toward resiliency indicators, projects financed, benefits achieved and dollars saved due to proactive actions. Customized metrics such people trained or funds leveraged will be tracked. The overall Fund will also be measured by its financial viability, community benefits and user ratings. b. Leverage. As discussed throughout this application, Colorado is collaborating with multiple state agencies, federal agencies, local jurisdictions and non-governmental partners who all are and will be playing a role in implementation of Colorado’s planning processes, which respond to identified vulnerabilities. A list of organizations that are providing Leverage is found in Attachment B. For example, the Watershed Coalition will be assisting with the implementation and maintenance of watershed projects. The Department of Transportation will be assisting with the implementation and maintenance of roadway infrastructure projects. Counties will be assisting with the implementation and maintenance of other infrastructure, housing and environmental restoration projects. Co-Benefits and Funding. Colorado’s NDRC strategy calls for the creation of a Colorado Community Resiliency Fund (Fund) that will be initially administered by DOLA with strategic Page 56
oversight from the CRO.
The Fund will be seeded with CDBG-NDR funds but will also solicit
and utilize funds from other sources such as State special appropriations, other federal funds, private corporations and foundations. The Fund will make grants and loans to high impact resiliency projects and programs that will have lasting impact and be guided by prioritization criteria established through the Framework and Local plans.
An initial set of projects will be
identified through the Local plan process to receive the CDBG-NDR portion of funds and they will also conform to those rules set forth in the NDRC NOFA. All projects supported by the Funds with both CDBG-NDR and other funds will be required to demonstrate co-benefits as defined through the Local plan process. Extending the Reach of the Concept. As discussed throughout this application, Colorado has committed to complete a statewide resiliency framework, which extends the resiliency planning process beyond the damages of past disasters and into reduction of vulnerabilities into the future. The partners described herein have all committed to fulfill their necessary role in the planning and implementation of this resiliency planning and implementation process. Committed Leverage Resources: Colorado Association of Funders is providing documentation of a cash contribution toward this project of $70,000.
Page 57
Exhibit G – Long-Term Commitment State of Colorado NDRC Application
Page 58
Exhibit G - Regional Coordination and Long-term Commitment The State of Colorado has made a long-term commitment to recovery and long-term resiliency through re-establishing critical infrastructure systems, returning families home, providing critical crisis counseling and case management, and re-opening or strengthening businesses impacted by a disaster. This long term commitment involves continuously searching for innovative approaches to technical and financial assistance. One such approach is Colorado’s NDRC strategy, which is centered on the seeding of the Colorado Community Resiliency Partnership Fund (Fund) and its utilization in supporting priority projects identified through the Local planning process. The fund will provide grants and financing for NDRC prioritized projects, and will ultimately create a long-term, stable source of grant and loan funds for communitybased resiliency projects. The following initiatives, developed in collaboration with multiple stakeholders and guided by the State through the CRO and the CRWG, with robust public engagement processes and input, have informed the need for the Fund and will continue to inform its structure and operation:
Colorado Resiliency Framework plan (Framework plan): To serve as state-wide guiding document;
Local Resiliency Strategy plans (Local plans): To be piloted in four to five of the most impacted local areas during Summer 2015, that will lead to long term local resiliency actions and the identification of priority projects for inclusion in the NDRC phase II application;
Watershed Coalitions and Master Plans; and,
Risk and Vulnerability Assessment.
Page 59
The Framework planning process was launched in July 2014 by Governor Hickenlooper and will be completed by the end of May 2015. The Framework plan will serve as a platform for an actionable strategy, as well as a guide for the development of Local plans. These Local plans will identify unmet community needs and utilize state risk assessment data to engage the community in a project prioritization process. This approach ensures that the needs of the most vulnerable and hard to reach populations are heard and addressed within the local project prioritization process. The project prioritization process will utilize criteria derived from both the Framework plan and the Local plans. Regional collaboration and long-term sustainability are at the core of Colorado’s approach to resiliency. Multi-disciplinary and regional coordination is integrated into all of the State’s planning programs, including the Framework, Local plans and Watershed Master Plans. Financial stability will be achieved through The Colorado Community Resiliency Partnership Fund. This approach builds the State’s resilience capacity by investing in institutions and planning processes. In this way, Colorado is not only preparing for a variety of future disaster threats, the State is thriving with a new sense of direction and purpose that will benefit its citizens far into the future.
Page 60
