Capability Assessment

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7CAPABILITY ASSESSMENTThis section of the Plan discusses the capability of Mecklenburg County and participating municipaljurisdictions to implement hazard mitigation activities. The Capability Assessment section consists of thefollowing six subsections: WHAT IS A CAPABILITY ASSESSMENT?CONDUCTING THE CAPABILITY ASSESSMENTCAPABILITY ASSESSMENT FINDINGSPREVIOUSLY IMPLEMENTED MITIGATION MEASURESCONCLUSIONS ON LOCAL CAPABILITYLINKING THE CAPABILITY AND RISK ASSESSMENTS TO THE MITIGATION STRATEGYWHAT IS A CAPABILITY ASSESSMENT?The purpose of conducting a capability assessment is to determine the ability of a local jurisdiction toimplement a comprehensive mitigation strategy, and to identify potential opportunities for establishing orenhancing specific mitigation policies, programs or projects.1 As in any planning process, it is important totry to establish which goals and actions are feasible, based on an understanding of the organizationalcapacity of those agencies or departments tasked with their implementation. A capability assessmenthelps to determine which mitigation actions are practical and likely to be implemented over time given alocal government’s planning and regulatory framework, level of administrative and technical support,amount of fiscal resources, and current political climate.A capability assessment has two primary components: an inventory of a local jurisdiction’s relevant plans,ordinances or programs already in place and an analysis of its capacity to carry them out. A carefulexamination of local capabilities will detect any existing gaps, shortfalls or weaknesses associated withongoing government activities that could hinder proposed mitigation activities and possibly exacerbatehazard vulnerability. A capability assessment also highlights the positive mitigation measures already inplace or being implemented at the local government level, which should continue to be supported andenhanced if possible through future mitigation efforts.The capability assessment serves as a critical part of the planning process, including the development ofan effective multi-jurisdictional hazard mitigation strategy. Coupled with the Risk Assessment, theCapability Assessment section helps identify and target meaningful mitigation actions for incorporation intothe Mitigation Strategy. It not only helps establish the goals for Mecklenburg County to pursue under thisPlan, but also ensures that those goals and the mitigation actions that follow are realistically achievablegiven local conditions.1While the Interim Final Rule for implementing the Disaster Mitigation Act of 2000 does not require a local capabilityassessment to be completed for local hazard mitigation plans, it is a critical step to develop a mitigation strategy thatmeets the needs of each jurisdiction while taking into account their own unique abilities. The Rule does state that acommunity’s mitigation strategy should be “based on existing authorities, policies, programs and resources, and itsability to expand on and improve these existing tools” (44 CFR, Part 201.6(c)(3)). Further, the State of North CarolinaDivision of Emergency Management recommends a local capability assessment to be completed for local hazardmitigation plans, as does the new Local Mitigation Planning Handbook published by FEMA in 2013.MECKLENBURG COUNTY MULTI-JURISDICTIONAL HAZARD MITIGATION PLAN7:1

CAPABILITY ASSESSMENTCONDUCTING THE CAPABILITY ASSESSMENTIn order to facilitate the inventory and analysis of local government capabilities throughout MecklenburgCounty, a detailed Capability Assessment Survey2 was distributed to Mecklenburg County’s departmentsand local municipal jurisdictions. The survey questionnaire, which was completed by local governmentofficials in 2005, again during the 2010 plan update process, and again during the 2015 plan updateprocess, requested information on a variety of “capability indicators” such as existing local plans, policies,programs or ordinances that may reduce, or in some circumstances, increase the community’s hazardvulnerability. Other indicators included information related to each jurisdiction’s fiscal, administrative andtechnical capabilities such as access to local budgetary and personnel resources necessary to implementmitigation measures, and also education and outreach capabilities. Survey respondents were also askedto comment on the current political climate in their jurisdiction to implement mitigation actions, an importantconsideration for any local planning or decision making process.At a minimum, survey results provide an extensive inventory of existing local plans, ordinances, programsand resources in place or under development in addition to their overall effect on hazard loss reduction.Local officials were also required to conduct a self-assessment of their jurisdiction’s specific capabilities.The survey instrument thereby not only helps to accurately assess each jurisdiction’s degree of localcapability, but also serves as a good source of introspection for those jurisdictions wishing to improve theircapability as identified gaps, weaknesses or conflicts can be recast as opportunities to implement specificmitigation actions.The information provided by participating jurisdictions was incorporated into a database for further analysis.A general scoring methodology3 was then applied to quantify and rank each jurisdiction’s overall capabilityrelative to one another. According to the scoring system, each indicator was assigned a point value basedon its relevance to hazard mitigation. Additional points were added based on each jurisdiction’s selfassessment of their own planning and regulatory capability, administrative and technical capability, fiscalcapability, education and outreach capability, and political capability.A general capability rating of “High,” “Moderate” or “Limited” was then determined for each jurisdictionaccording to the total number of points received. These classifications are designed to provide a generalassessment of each individual jurisdiction’s local capability relative to one another. In combination with thenarrative responses provided by local officials, the results of this multi-jurisdictional capability assessmentlend critical information for developing an effective and meaningful mitigation strategy.CAPABILITY ASSESSMENT FINDINGSThe findings of the 2015 capability assessment are summarized in this Plan in order to provide insight intothe abilities of participating jurisdictions to implement a feasible hazard mitigation strategy. All information isbased upon the input provided by local government officials through the Capability Assessment Surveyand during meetings of the Hazard Mitigation Planning Team.2The Capability Assessment Survey instrument used to assess county and municipal capabilities, as well asindividual surveys completed by participating jurisdictions are available through Mecklenburg County upon request.3The scoring methodology used to quantify and rank each jurisdiction’s capability is fully described in this section ofthe Plan.MECKLENBURG COUNTY MULTI-JURISDICTIONAL HAZARD MITIGATION PLAN7:2

CAPABILITY ASSESSMENTPLANNING AND REGULATORY CAPABILITYPlanning and regulatory capability is based on the implementation of plans, ordinances and programs thatdemonstrate a local jurisdiction’s commitment to guiding and managing growth, including reconstructionfollowing a disaster. Examples include emergency response, mitigation and recovery planning,comprehensive land use planning, transportation planning and capital improvements planning. Additionalexamples include the enforcement of zoning or subdivision ordinances and building codes that regulatehow land is developed and structures are built. These planning initiatives present significant opportunitiesto integrate hazard mitigation principles and practices into the local decision making process.This assessment is designed to provide a general overview of the key planning and regulatory tools inplace or under development for jurisdictions in Mecklenburg County, along with their potential effect onhazard loss reduction. This information will help identify opportunities to address existing gaps,weaknesses or conflicts with other initiatives in addition to integrating the implementation of this Plan withexisting planning mechanisms, where appropriate.Table 7.1 provides a summary of the relevant local plans, ordinances and programs already in place orunder development for Mecklenburg County’s participating local governments. A checkmark indicates ( )that the item is currently in place and being implemented and integrated by the local jurisdiction (or in somecases by the County on Behalf of that jurisdiction), or that is currently under development. A more detailed discussion of each jurisdiction’s planning and regulatory capability follows, along with theincorporation of additional information based on the narrative comments provided by local officials inresponse to the survey questionnaire. The most significant areas of improvement between the 2010 planupdate and the 2015 plan update is in the development of Unified Development Ordinances and Postdisaster Redevelopment/Recovery Ordinances. Two new types of plans considered for the 2015 planupdate include Site Plan Review Requirements and Community Wildfire Protection Plans. These planswill be monitored over the next five-year period to determine their effect on mitigation planning.MECKLENBURG COUNTY MULTI-JURISDICTIONAL HAZARD MITIGATION PLAN7:3NFIP Community Rating System NFIP Community Wildfire Protection Plan Fire Code Building Code Post-disaster Redevelopment /Recovery Ordinance Unified Development Ordinance Site Plan Review Requirements Subdivision Ordinance Zoning Ordinance Flood DamagePrevention Ordinance Transportation Plan Historic Preservation Plan Economic Development PlanDisaster Recovery Plan Capital Improvements PlanEvacuation PlanPinevilleContinuity of Operations PlanMint HillRadiological Emergency PlanMatthewsSARA Title III PlanHuntersvilleEmergency Operations PlanDavidsonStormwater Management PlanCorneliusOpen Space Management PlanCharlotteFloodplain Management PlanMecklenburg CountyComprehensive Land Use PlanJURISDICTIONHazard Mitigation PlanTable 7.1: Relevant Plans, Ordinances and Programs

CAPABILITY ASSESSMENTEmergency ManagementHazard mitigation is widely recognized as one of the four primary phases of emergency management.The three other phases include preparedness, response and recovery. In reality, each phase isinterconnected with hazard mitigation as Figure 7.1 suggests. Opportunities to reduce potential lossesthrough mitigation practices are ideally implemented before a disaster strikes. Examples include theacquisition or elevation of flood-prone structures or the enforcement of regulatory policies that preventconstruction in known hazard areas. In reality, the post-disaster environment provides another important“window of opportunity” to implement hazard mitigation projects and policies. During this time period,federal disaster assistance, including the Hazard Mitigation Grant Program (HMGP), may be available. Inaddition, elected officials and disaster victims may be more willing to implement mitigation measures inorder to avoid similar events occurring in the future.Figure 7.1: Four Phases of Emergency ManagementSources: Federal Emergency Management Agency; PBS&JPlanning for each phase is a critical part of a comprehensive emergency management program and a keyto the successful implementation of hazard mitigation actions. As a result, the Capability AssessmentSurvey asked several questions across a range of emergency management plans in order to assess eachjurisdiction’s willingness to plan and their level of technical planning proficiency.MECKLENBURG COUNTY MULTI-JURISDICTIONAL HAZARD MITIGATION PLAN7:4

CAPABILITY ASSESSMENTHazard Mitigation Plan: A hazard mitigation plan represents a community’s blueprint for how it intends toreduce the impact of natural and human-caused hazards on people and the built environment. Theessential elements of a hazard mitigation plan include a risk assessment, capability assessment andmitigation strategy. All local incorporated jurisdictions in Mecklenburg County actively participated in the developmentof the initial Multi-jurisdictional Hazard Mitigation Plan in 2005 and again during the 2010 planupdate process, and again during the 2015 plan update process. This Plan assesses all naturalhazard threats facing the area and the local capabilities to reduce their potential impact, andthrough ongoing intergovernmental coordination establishes countywide mitigation goals andindividual mitigation actions plans aimed at reducing future losses to natural hazards. Mecklenburg County has prepared and adopted 10 Watershed Flood Mitigation Plans. Thewatersheds encompass approximately 85 percent of flood-prone buildings in the CharlotteMecklenburg area. While the watershed plans do not meet the requirements established by theDisaster Mitigation Act of 2000, they have been incorporated into this Multi-jurisdictional HazardMitigation Plan, which is designed to meet all federal and state hazard mitigation planning rulesand regulations. The flood hazard analysis and flood mitigation projects identified in the watershedplans represent a strong commitment to flood loss reduction in the county. The Plan will build onthe work already completed to include an assessment of all natural hazards and the identificationof specific measures intended to reduce their impact.Disaster Recovery Plan: A disaster recovery plan serves to guide the physical, social, environmental andeconomic recovery and reconstruction process following a disaster. In many instances, hazard mitigationprinciples and practices are incorporated into local disaster recovery plans with the intent of capitalizing onopportunities to break the cycle of repetitive disaster losses. Disaster recovery plans can also lead to thepreparation of disaster redevelopment policies and ordinances to be enacted following a hazard event. The practice of disaster recovery is generally covered in the Charlotte-Mecklenburg CountyIntegrated Response Plan for All Hazards. The Response Plan is prepared and maintained by thestaff of the Charlotte-Mecklenburg Emergency Management Office (CMEMO) in coordination withother city and county departments. Initially adopted in 1953, the plan was amended in June 2004.The plan clearly delineates roles and responsibilities to support accountability and liability andenhance public safety in response to a disaster. While the plan strongly addresses emergencyoperations that will foster a prompt, efficient and coordinated response to a disaster, it does notfully address long-term recovery and reconstruction. All jurisdictions have indicated that guidelines for local disaster recovery procedures andoperations are coordinated through CMEMO as an annex to the Integrated Response Plan for AllHazards. The preparation of a countywide disaster recovery plan should be considered by the MitigationPlanning Committee as a potential mitigation action to propose in this Plan’s Mitigation Strategy orthrough future Plan updates. Mecklenburg County is aware of the State-sponsored pilot disasterrecovery planning initiative in Brunswick County and will evaluate the possibility of preparing itsown multi-jurisdictional recovery plan following a review of that effort and forthcoming tools from theNorth Carolina Emergency Management (NCEM).Emergency Operations Plan: An emergency operations plan outlines responsibilities and the means bywhich resources are deployed during and following an emergency or disaster.MECKLENBURG COUNTY MULTI-JURISDICTIONAL HAZARD MITIGATION PLAN7:5

CAPABILITY ASSESSMENT All municipal jurisdictions are covered under the Mecklenburg County All Hazards Plan andcooperate accordingly, although some have also prepared their own local emergency operationsplans. These include the municipalities of Matthews, Huntersville and Davidson. The All Hazards Plan has been determined to have a moderate effect on loss reduction, as itsemphasis focuses on preparedness and response operations versus hazard mitigation activities.Continuity of Operation Plan: A continuity of operations plan establishes a clear chain of command, line ofsuccession and plans for backup or alternate emergency facilities in case of an extreme emergency ordisaster event. Survey results indicate three (3) jurisdictions, Mecklenburg County, the City of Charlotte and Townof Huntersville, have continuity of operations plans in place or under development. The othermunicipal jurisdictions have indicated they fall under procedures identified in the CharlotteMecklenburg County All Hazards Plan; however do not have their own stand-alone continuity ofoperations plan.Radiological Emergency Plan: A radiological emergency plan delineates roles and responsibilities forassigned personnel and the means to deploy resources in the event of a radiological accident. The McGuire Nuclear Power Station is located in Mecklenburg County. Radiological hazards areaddressed in the Duke Power Company’s Emergency Response Plan on behalf of all jurisdictionsin Mecklenburg County. The plan prescribes those actions to be taken by Mecklenburg Countyand threatened municipalities in order to protect the health and safety of the general public whomay be affected by radiation exposure and environmental contamination resulting from anaccident or terrorist attack at the McGuire site. Radiological hazards are also addressed in the Charlotte-Mecklenburg County IntegratedResponse Plan for All Hazards.SARA Title III Emergency Response Plan: A SARA Title III Emergency Response Plan outlines theprocedures to be followed in the event of a chemical emergency such as the accidental release of toxicsubstances. These plans are required by federal law under Title III of the Superfund Amendments and Reauthorization Act (SARA), and the Emergency Planning and Community Right-to-Know Act (EPCRA). An Emergency Response Plan for chemical emergencies throughout the county is addressed inAnnex P of the Mecklenburg County All Hazards Plan. A comprehensive rewrite of the Annex wascompleted and adopted in June 2004. The Local Emergency Planning Committee (LEPC) is a sub-committee of the CharlotteMecklenburg All Hazards Advisory Committee (AHAC). A variety of local government officials,chemical industry representatives and media outlets participate in the LEPC planning process perEPCRA requirements.General PlanningThe implementation of hazard mitigation activities involves departments and individuals beyond theemergency management profession. Stakeholders may include local planners, public works officials,economic development specialists and others. In many instances, concurrent local planning efforts maycomplement hazard mitigation goals even though they are not designed as such. Therefore, the CapabilityAssessment Survey also asked questions regarding each jurisdiction’s general planning capabilities andMECKLENBURG COUNTY MULTI-JURISDICTIONAL HAZARD MITIGATION PLAN7:6

CAPABILITY ASSESSMENTthe degree to which hazard mitigation is integrated into other planning efforts. The results of this survey areoutlined below, along with the general findings of a separate section incorporated into the Plan during the2010 plan update that addresses the degree to which local planning mechanisms are currently being usedby each jurisdiction to achieve “safe growth” according to another separately completed survey.Comprehensive Land Use Plan: A comprehensive land use plan establishes the overall vision for what acommunity wants to be and a guide to future governmental decision making. Typically a comprehensiveplan is comprised of demographic conditions, land use patterns, transportation elements and proposedcommunity facilities. Given the broad nature of the plan and its regulatory standing in many communities,the integration of hazard mitigation measures into the comprehensive plan can serve as a far reaching,long-term risk reduction tool. Survey results indicate that all jurisdictions possess a comprehensive land use plan in addition toother growth and development-related policy documents. As described in Section 3: CommunityProfile local jurisdictions in Mecklenburg County are committed to managing growth in aresponsible and often cooperative manner. Some jurisdictions maintain small area plansaddressing specific issues and concerns. All participating municipalities indicated that their landuse plans either strongly support or help facilitate hazard loss reduction and are periodicallyupdated. The Town of Matthews reports that its comprehensive plan has undergone a rewrite as a unifieddevelopment ordinance.Capital Improvements Plan: A capital improvements plan guides the scheduling of spending on publicimprovements. A capital improvements plan can serve as an important mechanism to guide futuredevelopment away from identified hazard areas. Limiting public investment in hazardous areas is one ofthe most effective long-term mitigation actions available to local governments. Survey results indicate that seven (7) out of eight (8) jurisdictions have a capital improvements planin place or under development. Most are five-year plans that are updated annually. All surveyrespondents indicated that capital improvement plans either support or facilitate loss reductionefforts in their community. In the City of Charlotte, various departments prepare plans dependingon the type of capital improvement program they maintain. For example, the City of CharlotteStorm Water Services division addresses flood control projects. The Town of Mint Hill reportedly does not have a capital improvements plan currently in place.Historic Preservation Plan: A historic preservation plan is intended to preserve historic structures or districtswithin a community. An often overlooked aspect of the historic preservation plan is the assessment ofbuildings and sites located in areas subject to natural hazards to include the identification of the mosteffective way to reduce future damages.4 This may involve retrofitting or relocation techniques thataccount for the need to protect buildings that do not meet current building standards, or are within a historicdistrict that cannot easily be relocated out of harm’s way. Survey results indicate that six (6) out of eight (8) jurisdictions have completed a stand-alonehistoric preservation plan with rules and regulations that govern those properties (andneighborhoods) included in their local inventory and listed on the National Register of HistoricPlaces.4See Protecting the Past from Natural Disasters. 1989. Nelson, Carl. National Trust for Historic Preservation:Washington, D.C.MECKLENBURG COUNTY MULTI-JURISDICTIONAL HAZARD MITIGATION PLAN7:7

CAPABILITY ASSESSMENT The towns of Huntersville and Mint Hill do not currently have a historic preservation plan in place.Zoning Ordinances: Zoning represents the primary means by which land use is controlled by localgovernments. As part of a community’s police power, zoning is used to protect the public health, safetyand welfare of those in a given area. A zoning ordinance is the mechanism through which zoning istypically implemented. Since zoning regulations enable municipal governments to limit the type anddensity of development, it can serve as a powerful tool when applied in identified hazard areas. Survey results indicate that all jurisdictions in Mecklenburg County have adopted and enforce azoning ordinance. All jurisdictions indicated that their zoning ordinance either strongly supports orhelps facilitate hazard loss reduction. The towns of Cornelius, Matthews and Mint Hill indicated that they currently administer their zoningand subdivision regulations through a locally adopted Unified Development Ordinance.Subdivision Ordinances: A subdivision ordinance is intended to regulate the development of housing,commercial, industrial or other uses, including associated public infrastructure, as land is subdivided intobuildable lots for sale or future development. Subdivision design that accounts for natural hazards candramatically reduce the exposure of future development.5 Survey results indicate that all jurisdictions in Mecklenburg County have adopted and enforce asubdivision ordinance. All jurisdictions indicated that their ordinance either strongly supports orhelps facilitate hazard loss reduction, with some intending to strengthen their ordinance throughproposed mitigation actions as part of this Plan. The towns of Cornelius, Matthews and Mint Hill indicated that they currently administer their zoningand subdivision regulations through a locally adopted Unified Development Ordinance.Building Codes, Permitting and Inspections: Building Codes regulate construction standards. In manycommunities, permits are issued for, and inspections of work take place on, new construction. Decisionsregarding the adoption of building codes (that account for hazard risk), the type of permitting processrequired both before and after a disaster, and the enforcement of inspection protocols all affect the level ofhazard risk faced by a community. Per the General Assembly, communities in North Carolina are required to follow a statewidemandatory building code. The 2009 North Carolina Building Code is based on the 2006International Building Code (IBC), with heavy modifications being made by the North CarolinaBuilding Code Council (although few related to life and safety issues). Local governments mayalso amend the code pursuant to state approval. Mecklenburg County performs building code enforcement for all municipal jurisdictions.The adoption and enforcement of building codes by local jurisdictions is routinely assessed through theBuilding Code Effectiveness Grading Schedule (BCEGS) program developed by the Insurance Services5For additional information regarding the use of subdivision regulations in reducing flood hazard risk, see SubdivisionDesign in Flood Hazard Areas. 1997. Planning Advisory Service Report Number 473. American PlanningAssociation: Washington, D.C.MECKLENBURG COUNTY MULTI-JURISDICTIONAL HAZARD MITIGATION PLAN7:8

CAPABILITY ASSESSMENTOffice, Inc. (ISO).6 Under the BCEGS program, ISO assesses the building codes in effect in a particularcommunity and how the community enforces its building codes, with special emphasis on mitigation oflosses from natural hazards. The results of BCEGS assessments are routinely provided to ISO’s memberprivate insurance companies, which in turn may offer ratings credits for new buildings constructed incommunities with strong BCEGS classifications.In conducting the assessment, ISO collects information related to personnel qualifications and continuingeducation as well as the number of inspections performed per day. This type of information, combined withlocal building codes, is used to determine a grade for that jurisdiction. The grades range from 1 to 10, withthe lower grade being more ideal. A BCEGS grade of 1 represents an exemplary commitment to buildingcode enforcement, and a grade of 10 indicates less than a minimum level of recognized protection. Building code enforcement, which is handled by Mecklenburg County for all jurisdictions, hasreceived a BCEGS rating of “4” for personal lines and an exemplary BCEGS rating of "1" forcommercial and industrial lines.2010 Safe Growth SurveyAs part of the 2010 plan update process, each jurisdiction was also asked to complete a Safe GrowthSurvey. This unique survey instrument was drawn from a technique proposed by David Godschalk,FAICP and professor emeritus of city and regional planning at the University of North Carolina at ChapelHill, to help better evaluate the extent to which each local jurisdiction in Mecklenburg County is positionedto grow safely relative to its natural hazards. The survey was completed by appropriate planning, zoningand/or community development staff for each of jurisdiction and the results are summarized in Table 7.2.In completing the survey each respondent was asked to indicate how strongly they agree or disagree withthe “Safe Growth Statements” as they relate to their own jurisdiction’s current plans, policies and programsfor guiding future community growth and development, according to the following scale:1 Strongly Disagree2 Somewhat Disagree3 Neutral4 Somewhat Agree5 Strongly AgreeCharlotte*CorneliusHuntersvilleMatthewsMint HillPinevilleThe comprehensive plan includes a future land use map that clearly identifies naturalhazard areas.5515245Current land use policies discourage development and/or redevelopment withinnatural hazard areas.5555455The comprehensive plan provides adequate space for expected future growth inareas located outside of natural hazard areas.55154453345343Transportation policy is used to guide future growth and development to safelocations.4445343Transportation systems are designed to function under disaster conditions (e.g.,evacuation, mobility for fire/rescue apparatus, etc.).5533333Davidson**Safe Growth StatementMecklenburgCounty*Table 7.2: Results of 2010 Safe Growth SurveyCOMPREHENSIVE PLANTransportationThe transportation element limits access to natural hazard areas.6Participation in BCEGS is voluntary and may be declined by local governments if they do not wish to have their localbuilding codes evaluated.MECKLENBURG COUNTY MULTI-JURISDICTIONAL HAZARD MITIGATION PLAN7:9

CAPABILITY int HillPinevilleEnvironmental features that serve to protect development from hazards (e.g.,wetlands, riparian buffers, etc.) are identified and mapped.4455345Environmental policies

capacity of those agencies or departments tasked with their implementation. A capability assessment helps to determine which mitigation actions are practical and likely to be implemented over time given a . assessment to be completed for local hazard mitigation plans, it is a critical step to develop a mitigation strategy that .

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