PFC2013-0646 ATTACHMENT 2013 Flood Recovery Framework calgary.ca contact 3-1-1 Onward/ Calgary: A great place to make a living; a great place to make a life.
Contents Context...4 Weather conditions...5 Event timeline...6 Comprehensive emergency management model...7 Response...8 Impact...8 Recovery...9 Definitions...9 Resiliency...10 Guiding principles...10 Recovery...11 Mission...11 Flood recovery task force structure...12 People...13 Housing and property...15 Services...16 Infrastructure...18 Funding...19 Monitoring and reporting...20
Executive summary The following framework has been developed in order to document the activities to be undertaken by The City of Calgary as recovery from the June flood transitions from immediate relief to long-term community restoration, rehabilitation and resiliency. It provides background information regarding weather conditions that contributed to the widespread flooding in Calgary; an event timeline and key dates; a summary of emergency response actions and event impacts; an overview of the recovery framework mission, priorities, key focus areas, deliverables, and timelines; and the monitoring and reporting schedule that will be implemented to report on progress of recovery priorities over the duration of the recovery from this event.
Context In June 2013, Calgary experienced the largest flood in its modern history. An extraordinary precipitation event in the upper watersheds of the Bow and Elbow rivers caused a dramatic increase in river levels up and down stream of Calgary. Many communities were flooded forcing the evacuation of thousands of citizens and damaging large portions of our city. The Elbow River upstream of the Glenmore reservoir peaked at an estimated 1:500 year return peak flow rate. On the Bow River, levels peaked at flow rates in the 1:100 year return period range both upstream and downstream of the confluence with the Elbow River. This could have been much worse. Investment in emergency preparedness as well as lessons learned from the last major flood in Calgary (2005) positioned city staff with the skills and knowledge necessary to respond to this event. For example, recent water treatment technology upgrades combined with newly implemented reservoir operating guidelines allowed The City to attenuate a greater portion of the peak flow rate than would have been possible under pre-2005 operating guidelines. In addition, the flood wall built in Inglewood significantly reduced the impact of the flood for that community. Finally, The City s new Emergency Operations Centre (EOC) proved invaluable as it was the central location from which The City managed this event as many other City facilities were either closed or inaccessible. 4 the city of calgary flood recovery framework
Weather conditions In June 2013, Calgary experienced the largest flood in its modern history. During the 72-hour period from June 19-22, upwards of 300mm of precipitation fell in some areas of the Bow and Elbow River watersheds. This caused river levels to rise rapidly and resulted in widespread flood damage to public and private assets throughout the city. Flow rates on the Bow River peaked at an estimated 1700 cubic metres per second (cms) upstream of the Elbow confluence and at an estimated 2400 cms downstream of the Elbow confluence. For the Elbow River, flow rates peaked at an estimated 1240 cms upstream of the Glenmore Reservoir and at an estimated 700 cms downstream of the Glenmore Reservoir. Alberta Environment and Sustainable Resource Development Precipitation Map (total precipitation in mm). the city of calgary flood recovery framework 5
Event timeline The majority of physical flooding in Calgary took place between June 21st and June 24th. A State of Local Emergency (SOLE) was in place from June 20th to July 4th. As it was recognized early that this was a significant event that required a coordinated recovery effort, the Recovery Operations Centre (ROC) was opened on June 22. The ROC Steering Committee named a Director of Recovery to oversee a Flood Recovery Task Force on July 4. After the expiration of the SOLE, the Emergency Operations Centre (EOC) remained active until July 12th as heightened emergency operations remained in effect. The Municipal Emergency Plan (MEP) remains activated as of 2013 September 3. 6 the city of calgary flood recovery framework
Comprehensive emergency management model The Calgary Emergency Management Agency (CEMA) has adopted a comprehensive emergency management model that provided strategic guidance preparing for and responding to the flood event. This model illustrates how the relationship between pre-event activities (risk assessment, prevention, mitigation and preparedness) and postevent activities (response, recovery and rehabilitation) contributes to the speed at which the corporation can return to normal business. SOURCE DOCUMENTS: Community Disaster Recovery: A Guide for BC Local Authorities and First Nations Ministry of Public Safety and Soliciter General, 2006 Federal Policy for Emergency Management Public Safety Canada, 2009. the city of calgary flood recovery framework 7
Response Impact The successful city response to this event required not only the mobilization of city staff members but also volunteers, civic partners, Canada Taskforce 1 and 2 (CANTF1/CANTF2), community-based organizations, the Canadian Forces, and numerous personnel from other municipalities and other levels of government. The City response was coordinated by the Calgary Emergency Management Agency (CEMA) in the municipal Emergency Operations Centre (EOC). The EOC was a critical resource that was heavily relied upon during this event. The totality of City response activities can be broken down into three sub-categories: 1. Life safety, including evacuation and emergency social service activities; 2. Protection of property and the environment, including critical infrastructure activities 3. Business continuity. The flood had a devastating impact to the built, economic, natural, and social environments within the city. There were prolonged power interruptions, lengthy transportation delays, extensive property loss, protracted city service delays, and significant infrastructure damage. Some of the specific impacts include: Approximately 50,000 people in 26 communities evacuated Approximately $460 million in initial damage and cost estimates Over 80 infrastructure and asset repair projects identified to date, representing hundreds of sites and assets including Civic Partners More than 30,000 Enmax clients without power Approx. 4,000 businesses impacted 50 bus routes cancelled or detoured 30 parks flooded 20 bridges closed 16 LRT stations closed More than 100,000 calls received at 311 1.8 million web visits For The City, the flood led to a cascading series of secondary emergencies that disrupted normal services and exacerbated the situation. Internal communication infrastructure was hit particularly hard as city facilities flooded. Internal networks and phone lines were lost and Calgary.ca - a prime means of communication with the public - was disrupted during the peak of the event. Transportation infrastructure was also severely impacted as bridges on the Elbow and Bow Rivers were closed during the peak of the flood; the LRT system through the centre of the city was shut down due to flooded tunnels and damaged tracks; and bus routes were temporarily cancelled or detoured. 8 the city of calgary flood recovery framework
Recovery The official transition from EOC flood response to ROC flood recovery began when the State of Local Emergency expired on July 4, 2013. Research indicates that successful recovery is realized when a holistic, community-based approach addresses issues in the built, economic, natural, and social environments. The Flood Recovery Task Force (the Task Force) will provide citizen centric service that is safe for staff and public, optimize resource and process efficiencies, manage financial impacts, and align cross-departmental interests. The Task Force will focus on short and long term recovery objectives following the impacts of the 2013 June flood. To that end, this framework details the approach that will guide and coordinate all of the work undertaken by the Task Force. Specifically, the framework: provides a definition of recovery; establishes the principles that will guide all of the recovery work undertaken by the taskforce; identifies the mission, priorities, and deliverables of the taskforce; identifies key result areas, projects, priorities, timelines, and organizational leads; and provides measurements for monitoring and reporting on recovery progress. The impact to Calgary following the 2013 June flood is significant and will require a dedicated commitment on the part of The City of Calgary in order to stabilize, restore, rehabilitate, and recover. Recovery from this event will take many years. The disaster also offers an opportunity to address longstanding socio-economic and infrastructure issues and create thriving and sustainable communities. The City is well positioned with the functional capacity, authority, and resources required to make informed decisions that will assist community members through the long-term recovery planning process and strengthen Calgary s resilience to a future disaster event. Definitions The following definitions (as per The City s Recovery Operations Centre manual) will be utilized by the Task Force. Short-term Recovery: response, rescue, shelter, food, medical care, and the restoration of critical public services and basic economic activity to meet the immediate needs of the community. Long-term Recovery: restoration, re-development, regeneration, rehabilitation, and improvement ( build back better principle) of facilities, livelihoods and living conditions of disaster-affected communities, including efforts to reduce disaster risk factors. the city of calgary flood recovery framework 9
Resiliency There are many reasons for a municipality to prioritize resilience as part of its sustainable development planning agenda. As the UN s How to Make Cities More Resilient handbook (2012) notes, reducing disaster risk can be a legacy opportunity paying attention to protection will improve environmental, social and economic conditions, including combating the future variables of climate change, and leave the community more prosperous and secure than before. Community recovery must not only address the vitality of the built, economic, natural, and social environments but also reduce the risk of future disaster events in order to build a more disaster resilient community. While recovering from the June flood, opportunities to develop and sustain long-term resiliency must be explored in order to prepare The City for the next event. As such, the Task Force has committed to developing a set of key recommendations that will contribute to long-term resiliency for Calgary. Guiding principles The Flood Recovery Task Force has agreed on a set of principles that will guide its recovery efforts from the 2013 flood. For the taskforce, successful recovery will: Be based on an understanding of the community context Acknowledge the complex and dynamic nature of emergencies and communities Be responsive and flexible, engaging communities and empowering them to move forward Require a planned, coordinated and adaptive approach based on continuing assessment of impacts and needs Be built on effective communication with affected communities and other stakeholders Recognize, supports and builds on community, individual and organizational capacity Consider the social, economic, environmental and smart growth impacts (as outlined in The City s Triple Bottom Line policy framework) (Guiding Principles are based on the Government of Australia National Principles for Disaster Recovery and The City of Calgary s Triple Bottom Line Policy Framework ) 10 the city of calgary flood recovery framework
Recovery Taking into consideration the dynamic nature of recovery, a review of the relevant literature, and recent international disaster events, the Task Force will focus on the following five identified priority areas: People Housing & Property Infrastructure Services and Funding These five areas have been assigned a dedicated lead and support staff. They will be assisted by the following support functions: Administrative Services Communications and Engagement Data and Information Management Inter-governmental Legal Mission The Flood Recovery Task Force will provide leadership, within the City of Calgary and the Calgary community, to identify and resource immediate flood recovery activities, and support the delivery of recovery, mitigation and resilience recommendations for the BPBC4 business cycle. the city of calgary flood recovery framework 11
Flood recovery task force structure City Manager Recovery Opera5ons Steering CommiBee Intergovernmental Recovery Director Gordon Stewart Communica5ons & Engagement (Internal, Public) Legal CEMA Data and Informa5on Management People Ci5zens & Their Communi5es City Employees Services City Services Governance & Policy Housing and Property Infrastructure Funding 1 12 the city of calgary flood recovery framework
People Supporting Calgarians who still need our help, ensuring City staff have what they need to serve citizens, and ensuring community needs are met. Key result area: citizens and their communities Focus The Citizens and Their Communities KRA focuses on the needs of individuals and communities as they recover from the flood and build resiliency including preparation for future disaster events. Objectives Support individual recovery and wellbeing for flood victims: Strategies have been put in place to mitigate the effect of stress and other immediate needs, such as housing. Contribute to community resilience and wellbeing: Impacted community residents have been actively engaged, listened to and heard; their suggestions have been followed up on, they have been organized and advocated for by CNS and they have been supported in their recovery efforts through City business units and other partners and agencies such as the Red Cross and United Way 2013 Deliverables Temporary Shelter Program (Q3 2013) Neighbourhood Strategy and Implementation Plan (Q4 2013) Donations Strategy (Q4 2013) 2014 Deliverables Vulnerable Population Strategy and Implementation Plan is developed in partnership with other partners and agencies. (Q2 2014) the city of calgary flood recovery framework 13
People continued Key result area: City employees Focus The City Employees key result area focuses on creating an environment that supports City employees access to the tools and resources required to be productive subsequent to the flood and through the recovery period. Objectives Return City employees to required business activities Return City employees to identified workspaces Provide City employees with access to tools and technologies Support City employees in order to maintain productivity subsequent to the flood event and through the recovery period. 2013 Deliverables Provide HR support to ROC Flood Recovery Task Force (on-going) Provide ongoing communications and information regarding HR issues emerging during recovery Complete review of policy for Pay and Benefits during a Municipal Emergency and schedule approval with ALT (ongoing) 2014 Deliverables Recognition event (2013) Support employees to maintain productivity during the recovery project (Q4 2014) New or adapted HR services to support recovery project (Q4 2014) Identify HR processes and procedures required to better support the organization during an emergency (Q4 2014) Identify opportunities to align with future strategic HR initiatives project (Q4 2014) 14 the city of calgary flood recovery framework
Housing and property Assisting highly impacted citizens and property owners in their recovery. Key result area: housing and property Focus The Housing & Property key result area focuses on stabilizing the immediate and short-term housing and reconstruction needs of displaced citizens and property owners. Objectives Assist the Government of Alberta with short term housing Stabilize housing for displaced citizens Provide all displaced property owners with the opportunity to return to their buildings (residential and commercial) Facilitate the construction industry capacity 2013 Deliverables Government of Alberta Short-term Housing Project (Q3 2013) Initial Property Inspections Project (Q4 2013) Construction Industry Strategy e.g. business licenses (Q4 2013) Immediate Reconstruction Facilitation Strategy e.g. building permits (Q4 2013) 2014 Deliverables Interim Housing Project (Q1 2014) Flood-fringe Mitigation DRP Inspection Project (Q4 2014) the city of calgary flood recovery framework 15
Services Working on returning regular City services back to citizens. Key result area: City services Focus The City Services key result area focuses on ensuring that service levels meet the needs of Calgarians as they recover from this event while also assisting internal stakeholder s measure and report progress on recovery initiatives. Objectives Document the utilization of City services to indicate whether The City is positioned to return to or improve on its pre-flood service levels Review and implement applicable process improvements to accommodate approved policy changes 2013 Deliverables Department/BU Service Reporting Dashboard Project completed and operational (Q3 2013) Rebuilding licensing and permitting process project (Q4 2013) 2014 Deliverables Information and data management assistance to ROCTF (ongoing) 16 the city of calgary flood recovery framework
Key result area: governance & policy Focus The Governance and Policy key result area focuses on collaborating with the different orders of government and external stakeholders to identify opportunities for legislative, regulatory, and policy amendments while also developing long-term risk reduction and resiliency recommendations. Objectives Collaborate with the Government of Alberta through a managed process Engage the Government of Alberta to align policies where appropriate Review applicable policies, recommend updates, and implement appropriate changes to approved City Polices Engage and inform stakeholders regarding key decisions that affect them 2013 Deliverables Common baseline data agreement between Province and The City (i.e. inundation mapping and river survey) project (Q3 2013) Short-term review of applicable policies and development of suggested amendments to provincial legislation project (Q4 2013) Short-term advocacy strategies developed to support The City s strategic positions project (Q4 2013) 2014 Deliverables Mid- and long-term review of applicable policies and development of suggested amendments to provincial legislation project (Q4 2014) Mid- and long-term advocacy strategies developed to support The City s strategic positions project (Q4 2014) Land Use Bylaw Review and Update Project (Q4 2014) Communications/Engagement Integrated Program (Q4 2014) The City s long-term resiliency program recommendations - input to BPBC4 project (Q4 2014) Corporate flood response/recovery/resiliency lessons learned project (TBD) the city of calgary flood recovery framework 17
Infrastructure Working on assessing and rebuilding roads, bridges, river banks, parks and other City infrastructure that was damaged by the flood. Key result area: infrastructure Focus The Infrastructure key result area has been initiated in order to ensure there is a coordinated and comprehensive effort to assess impacts to municipal infrastructure, provide a financial estimate to restore impacted infrastructure, and follow the required processes to recover funds from available sources. These sources are insurance companies and the Alberta Disaster Recovery Program. Objectives Identify, assess, and prioritize all damaged City Infrastructure (including Civic Partners) within BU s and across the Corporation and integrate into all Departmental Capital Programs. Define, share, and implement criteria to be used for assessment and priority setting in order to inform 2013 budget adjustments, BPBC4 and internal and external communications. Complete, initiate, and/or transition the repair, build or improvement of City infrastructure (including Civic Partners) to operations for completion within Departmental Capital Programs Invite all third party owners/ maintainers of infrastructure to advise the City on the status of their progress regarding flood repairs/ improvements Transition ongoing coordination, reporting and communication of infrastructure recovery program to operational sustainment through full financial recovery. 2013 Deliverables Infrastructure Assessment Project (Q3 2013) Third Party Recovery Status Project (Q4 2013) Infrastructure Recovery Sustainment Plan (Q4 2013) Infrastructure Recovery Prioritization Process for BPBC4 (Q4 2013) 2014 Deliverables The City s long-term resiliency program recommendations input to BPBC4 project (Q4 2014) 18 the city of calgary flood recovery framework
Funding Balancing our flood recovery with Council priorities. Key result area: financial Focus The Financial key result area focuses on tracking expenditures, reporting costs, securing recovery funding, and updating budget adjustments related to the flood event. Objectives Identify funding sources Communicate and manage the process and documentation for funding approval Transition funding applications and their status to the appropriate corporate entity for operational sustainment Ensure funding received against capital recovery/ improvement projects has been approved in the 2014 budget adjustment or has been included as part of the BPBC4 process (inclusive of its respective adjustment processes) 2013 Deliverables SOLE Event costs 2013 Request For Expenditures Approved for Immediate/Urgent Projects 2013 Budget Revisions (September 2013) 2014 Budget Adjustments (November 2013) Recovery of Emergency Event (Ongoing) 2014 Deliverables 2014-2018 Business Plan and Budgets (November 2014) Recovery of Infrastructure Program (Ongoing as projects are completed) the city of calgary flood recovery framework 19
Monitoring and reporting The Recovery Taskforce has established a process to manage the collection, tracking, storing, and reporting of all flood-related information. The taskforce commits to reporting to council quarterly (or more frequently as deemed necessary). Internal monitoring and reporting on recovery deliverables will occur more frequently as determined by the assigned recovery leads. 20 the city of calgary flood recovery framework
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