2.1. Building the Planning Team

The second key task at the start of the planning process is to bring together a diverse and inclusive planning team. These representatives should come from each participating jurisdiction and partner organization, especially those with data, funding sources or comprehensive local knowledge. As discussed in Task 1, these planning partners have the necessary expertise to inform the plan. Additionally, partner organizations may have the authority to carry out the mitigation strategy developed through the planning process. The planning team is the core group of people responsible for:

• Developing and reviewing drafts of the plan.
• Informing the risk assessment.
• Developing the mitigation goals and strategy.
• Submitting the plan for local adoption by each participant.

Many local agencies have an interest in, and tasks related to, mitigation. The planning process should include these agencies. For example, emergency management and community planning staff in local government have unique knowledge and skills. These skillsets make them potential leaders for the planning process. Local emergency management staff know area-specific threats, hazards, risks, vulnerabilities and past occurrences. They may also have more experience working with state and federal agencies on mitigation projects and activities. Community planning staff are familiar with zoning and subdivision regulations, land use plans, economic development initiatives, climate adaptation and resilience plans and projects, and long-term funding and planning mechanisms to carry out mitigation strategies. They may be trained to do public outreach, lead and facilitate meetings and develop a plan.

Community development and emergency management staff can lead the development of a local mitigation plan. Other departments may be able to do the same. When determining leadership, think about who has the time and resources to commit to the whole planning process. It can be helpful to designate a lead jurisdiction who is handling all the coordination for the plan. Each jurisdiction in a multi-jurisdictional plan should have a lead representative to coordinate its planning process, engage partners and conduct public outreach.

If you are developing a multi-jurisdictional plan, creating a group planning team structure that allows for coordination and accountability between jurisdictions is key. If using this approach, each jurisdiction should have at least one representative on the planning team. This representative will coordinate and delegate any tasks within their part of the planning area. They should also manage the inputs and content (including public outreach and engagement) they contribute to the plan. Each participating jurisdiction, including special districts, will need to meet the requirements to be able to adopt the plan. This means being an active participant in the planning process. It also means providing local context and detail, as well as reviewing the draft plan and providing comments.

Not every planning team will be the same. The structure of the planning team depends on the needs of local participants. Think about different types of organizational structures when you form your planning team. This could include a planning committee divided into one steering committee and one separate planning team for each participating jurisdiction. The core planning group can manage the overall plan activities. It can also directly help with the decision-making process.

Some planning teams may have a single point of contact (POC) or representative for each jurisdiction. Others may have more than one. Even if the planning team has more than one representative from a particular jurisdiction, it is a good idea to designate one lead POC for each jurisdiction. This person will report back to their departments, partners and the public on a regular basis. They will also gather feedback and input for the plan from stakeholders.

When building the mitigation planning team, start with existing community organizations or committees. For mitigation plan updates, bring together as many members of the team from the last planning process as possible. Add in any new individuals or organizations. A committee that oversees the comprehensive plan or addresses issues related to land use, transportation or public facilities can be a strong foundation for your team.

Adding in a diverse array of planning team members can create a comprehensive view of how threats and hazards affect:

• Economic development.
• Housing, health and social services.
• Infrastructure.
• Natural and cultural resources.
• Underserved communities and socially vulnerable populations.

You can also build on your community’s Local Emergency Planning Committee (LEPC). This group deals with hazardous materials safety and may also address other threats and natural hazard issues. In small communities, LEPCs may comprise the same people and organizations that the mitigation planning team needs.

Stakeholders are individuals or groups that a mitigation action or policy affects. Stakeholders may include businesses, private organizations and residents. Involving them in the planning process helps to gain support for the plan and identify barriers to carrying it out.

It is crucial to distinguish between those who should serve as members of the planning team and other stakeholders. Planning team members work in all stages of the planning process; stakeholders may not. However, they can advise the planning team on a specific topic. They can also give input from varied points of view in the community.

Some stakeholders must have the chance to be on the planning team or otherwise involved in the planning process:

• Local and regional agencies involved in hazard mitigation activities. Examples include public works, emergency management, local floodplain administration and Geographic Information Systems (GIS) departments.
• Agencies that have the authority to regulate development. Examples include zoning, planning, community and economic development departments, building officials, planning, commissions and other elected officials.
• Neighboring communities. Examples include adjacent local governments, including special districts and tribes, that are affected by similar hazard events. They also may share a mitigation action or project that crosses jurisdictional boundaries.
• Businesses, academia and other private interests. Examples include private utilities, chambers of commerce, dam owners, local or regional educational centers within the jurisdiction, or major employers that sustain community lifelines.
• Nonprofit organizations, including community-based organizations, that work directly with and/or provide support to underserved communities and socially vulnerable populations. It is key to bring partners to the table who can speak to the unique needs of these groups. They can make sure the planning process supports these populations and includes their voices in the plan. These groups may include:
  • Faith-based organizations.
  • Disability services agencies or non-governmental organizations (NGOs).
  • Rural support agencies.
  • Health and social services departments.
  • Housing agencies and housing advocacy groups.

An opportunity to be involved in the planning process means that these stakeholders are invited to participate. It could also mean they are asked to share information or input to inform the plan’s content. Some communities may need more targeted outreach and engagement. This is especially true of underserved communities. Outreach and engagement efforts should respond to the communities’ specific needs. For instance, some community members may lack access to high-speed internet. As such, they may not be able to access websites, social media campaigns, email newsletters or virtual meetings.

Stakeholders should also include people who represent community lifelines. Community lifelines are the vital services in a community. When stabilized, they enable all other aspects of society to function. Think about the agencies or companies that represent your community’s lifelines and invite them to be a stakeholder for your mitigation plan.

Lifeline	Example(s)
Safety and Security	Law enforcement, police stations, site security, fire service, search and rescue, government service (emergency operations centers, government offices, schools, historic/cultural resources), community safety.	•  Provide first-hand knowledge of past hazard events and response systems.
		•  Connect the mitigation plan to the Threat and Hazard Identification Risk Assessment (THIRA) planning process and vice versa.
Hazardous Materials	Oil and HAZMAT facilities.	•  Share data on lifeline locations, protection measures and capabilities that support local resilience.
Food, Water, Shelter	Food distribution programs, commercial food supply chain, drinking water utilities, wastewater systems, housing and commercial facilities, animals and agriculture.	•  Coordinate housing issues to identify risk and vulnerabilities to this sector and lifeline.
		•  Ensure the mitigation strategy directs new and redeveloped housing away from hazard areas and uses the latest building codes to maintain safe housing.
		•  Use the planning process to:
		*    Understand high-risk areas and at-risk populations.
		*    Increase awareness of potential funding to support housing development and maintaining Food, Water, and Shelter lifelines.
		•  Share data on lifeline locations, protection measures, and capabilities that support local resilience.
Health and Medical	Medical care, hospitals, pharmacies, home care, public health services, emergency medical services, medical supply chain, fatality management services.	•  Help the planning team understand social vulnerability in the community, including underlying stressors.
		•  Help identify actions and projects that reduce risk exposure for underserved communities and socially vulnerable populations.
		•  Link socially vulnerable populations or the organizations that serve them to grants and other assistance, before and after a disaster.
		•  Connect traditional health, medical and social services and mitigation funds.
		•  Integrate mitigation into the disaster recovery process.
		•  Share data on lifeline locations, protection measures, and capabilities that support local resilience.
Energy	Power grid generation, transmission, and distribution systems, fuel processing, storage, pipelines, and distribution.	•  Identify at-risk infrastructure assets, including transportation, energy, communications, water conveyance and supply chains.
		•  Develop and prioritize mitigation actions for at-risk assets.
Transportation	Highways, roads, bridges, mass transit, railway, aviation, maritime.
Communications	Infrastructure (wireless, cable, broadcast, satellite, internet), responder communications, alerts, warnings, and messages, financial banking services, 911 and dispatch.	•  Integrate resilience into infrastructure investment decisions.
		•  Share data on lifeline locations, protection measures, and capabilities that support local resilience of infrastructure (highways, roads, bridges, mass transit, railway, aviation, maritime). Develop and prioritize mitigation actions for at-risk assets.
		•  Integrate resilience into infrastructure investment decisions.
		•  Share data on lifeline locations, protection measures, and capabilities that support local resilience (cable, broadcast, satellite, internet)
		•  Develop and prioritize mitigation actions for at-risk assets.

Each jurisdiction may define other interested stakeholders. These depend on the unique characteristics and resources of the community. The following stakeholders are vital in mitigation planning:

• Elected officials and planning commission members. Elected officials are responsible for protecting the health, safety and welfare of their residents. They are often leaders or members of the governing bodies that adopt the plan. The level of support that the elected officials give to the mitigation plan’s goals and actions guides the plan’s progress and implementation. It also guides the resilience of the community.
• Business leaders and large employers. Economic resiliency drives a community’s recovery after a disaster. A key part of mitigation planning is identifying the economic assets and drivers whose loss or inability to operate would severely affect the community’s ability to recover from a disaster. Involve economic development officials, the local chamber of commerce and business leaders in the planning process. This can encourage them to be partners in future mitigation work. Teaching them about local risks and vulnerabilities helps this process. Economic sector representatives invited to participate in the plan should include private businesses that sustain community lifelines. These employers could be private utilities, housing and hotel owners, television and radio stations, hospitals, pharmacies and food suppliers.
• Regional, state and federal agencies. Public agencies are key resources for data and technical information. These include regional planning agencies, geological surveys, forestry divisions, emergency management offices, dam safety agencies and weather service offices. These groups can work at the regional, state and federal government levels. They are key resources for data and technical information. They may also be able to provide financial assistance. These agencies may have programs that will help you meet your mitigation planning goals.
• Cultural institutions. Cultural institutions often have special mitigation needs. These include museums, libraries and theatres. For example, they may be in a historic building or house collections that need special protection from hazards. They also may collect records and historic information on natural disasters in your community. For more information, see Integrating Historic Property and Cultural Resource Considerations into Hazard Mitigation Planning.
• Colleges and universities. Like public agencies, academic institutions have key resources to aid planning efforts. These resources may include natural hazards data, GIS mapping and analysis, or research on successful ways to reduce risk. The planning team may be able to work with a local college or university to engage students in the planning process. This may also help to complete research and analysis that the mitigation plan needs. You could partner with the urban planning, geology, emergency management, geography or environmental studies departments. Participating in the mitigation planning process can also help local colleges and universities understand and reduce threat and hazard risks on their campuses.
• Nonprofit organizations. These groups often act as advocates for residents. They can be key to public outreach, information sharing and getting support for the plan’s mitigation actions. Nonprofit organizations might include:
  • Disaster preparedness and response groups, such as the local Red Cross.
  • Parks, recreation or conservation groups.
  • Historic preservation groups.
  • Faith-based organizations.
  • Parent-teacher groups.
  • Climate change groups.
  • Community-based groups that work with underserved communities, such as a local food bank. Other organizations may include housing, healthcare or social services providers.
• Neighborhood groups or community leaders. Many communities have neighborhood and homeowners’ associations that are active and engaged in community activities. These groups can share key information about local risks and possible mitigation solutions in specific areas. Both neighborhood groups and community leaders often know the specific needs of socially vulnerable populations or underserved communities. They can make sure those groups’ interests are accurately represented. They can also share information via newsletters and meetings.

In any of these categories, think about how you can include organizations that aid underserved communities and socially vulnerable populations. This will help to ensure equitable access to the planning process and the meaningful participation of all residents.

Many different stakeholders could join in the planning process. Building an outreach strategy can help you find the right contacts and contributions for each stakeholder or group. You may choose which stakeholders you contact directly, and which you include in outreach to the general public. Your choices will depend on your community’s needs and the timeline for plan development.

After you find potential planning team members and stakeholders, it is important to keep them engaged throughout the planning process. Getting team members with competing priorities to invest time and energy in the mitigation planning process can be difficult.

It is crucial to decide what planning team members and partners need to contribute. It is also key to decide how you will invite them to participate. When developing a plan, think about what worked and what didn’t during the previous planning process. The following are ways to recruit potential team members:

• After you send an email or letter invitation, follow it up with a phone call. Talk about why their participation is needed. It will also give you a chance to answer any questions they may have.
• Send a formal invitation signed by an elected official or department head. Include a meeting agenda in the invitation. This can help to capture the interest of potential participants. It can also add a measure of structure to the planning process.
• Hold each meeting at a convenient time and place for everyone.
• Provide beverages or food at meetings to boost attendance and attention spans.

The people you invite will want to know what you expect of them. They will also want to know why their presence is important. Table 5 provides examples of how specific stakeholders can support the planning process.

Contributor	How They Can Support the Plan
Community planners	•  Help the planning team understand:
	•  Past, current and future community development trends.
	*   The policies or activities that affect development.
	*   The relationship between hazards and development, especially effects on underserved communities.
	*   The expected future climate change impacts and their influence on hazards.
	*   Local outreach, facilitation and consensus building.
Emergency managers	•  Provide perspective as first responders. They have information on past events and existing preparedness measures.
	•  Connect to the state emergency management agency.
GIS specialists	•  Analyze and map data to support the planning process.
	•  Explain complex information. This information may include the locations of at-risk assets in threat- or hazard-prone areas. It may also include damage estimates for a specific disaster scenario.
Public works/engineering staff	•  Help identify current or projected problems for the community’s infrastructure that the plan can address.
	•  May be able to outreach with dam owners / operators and provide relevant information.
Elected and executive officials	•  Build public buy-in for the plan and investing in mitigation.
	•  Explain how the mitigation plan can support other social, economic or environmental goals of the community.
Floodplain administrators	•  Provide information on your community’s flood hazard maps, floodplain ordinance and repetitive loss properties.
	•  Identify actions to continue compliance with the NFIP, maintain or improve CRS scores, and reduce flood losses.
	•  Provide ideas on integrating the mitigation plan with floodplain management plans and policies.
State and federal partners	•  Provide expertise and data available from programs with complementary missions.
	•  Support identifying and using resources across agencies.
Historic preservation and environmental protection staff	•  Help identify sensitive areas and areas of historical and cultural significance.
	•  Provide insight into any endangered species or ecological preservation plans.
Finance staff	•  Identify potential funding sources.
	•  Share expertise identifying, applying for and managing grants.
Public Information Officer (or other communication staff)	•  Develop and/or implement your outreach and engagement strategy.
Land use and development partners including the agency or department that regulates building codes	•  Share future land use and development knowledge to assess vulnerability.
	•  Help the planning team connect development patterns to when and where hazards may occur.
	•  Reduce local risk by directing development away from hazard areas and supporting hazard-resistant building codes.

Planning efforts can be more successful if the team receives official authority to form the mitigation plan. The planning team could get official recognition in the form of a council resolution or a voluntary participation agreement (VPA). This can:

• Show community support.
• Increase commitment to the process.
• Improve the chances that the mitigation actions listed in the plan will be carried out successfully.

Local elected officials and staff should provide strong leadership throughout the planning process. Leadership from elected officials with an interest in improving safety and disaster resiliency gives the planning process visibility and supports stakeholder participation.

It is also key to have a strong advocate or local champion for mitigation on the planning team. This champion can help gain the support and participation of local officials and community leaders.