6

Housing, Health, and Planning in the Context of Resettlement and Receiving Communities

For the third and final session of the Houma workshop, the committee selected local leaders and experts from the private sector and government agencies to discuss the implications of housing, health, and planning in the context of resettlement and receiving communities. Panelists gave individual presentations and then elaborated on these themes in a roundtable discussion moderated by Craig Colten, a committee member.

COMMUNITY STORIES FROM TERREBONNE PARISH

Kelli Cunningham, Director, Terrebonne Parish Housing and Human Services

Cunningham helps people who are homeless or who have been displaced due to a natural disaster such as Hurricane Ida. For category one through category three hurricanes, Terrebonne Parish typically shelters in place and opens as a shelter the Terrebonne Parish Municipal Auditorium. Cunningham went on to say if that facility is unavailable, they have a list of other facilities to use that have already been inspected and approved by the fire marshal. Due to damage from Hurricane Ida, about 500 residents were evacuated from Terrebonne Parish. Thanks to an agreement established beforehand by their Emergency Operations Center Director, some residents could go to Monroe in northern Louisiana. St. Mary Parish, just north of Terrebonne, also agreed to open some shelters, which the Red Cross man-

aged, so that some residents could be closer to their homes.⁵⁷ In addition, the governor’s office set up some base camps until the Federal Emergency Management Agency (FEMA) could provide campers for homeowners.

According to Cunningham, public housing was a big issue in Terrebonne Parish before Hurricane Ida. Then, during the hurricane, an eleven-story 300-unit complex for the elderly was destroyed, and the public housing facility for families was substantially damaged. Cunningham added that 240 housing vouchers were issued for elderly residents, but due to the lack of housing in Terrebonne Parish, they have only been able to rehouse 19 voucher holders. The parish has plans to create additional housing, but she said they are awaiting disaster recovery funding. Therefore, no planning has been undertaken to consider options for longer-term housing for people migrating from farther down the bayou who might want to stay in Terrebonne. Cunningham stated that most existing residents do not want to move outside of Terrebonne.

Jessica Domangue, Terrebonne Parish Councilwoman, Houma District 5

Domangue explained that her run for office was spurred by the problems and shortfall of resources she saw in her work as a licensed clinical social worker even before Hurricane Ida. After recently being introduced to the idea of climate migration and the related idea of receiving communities, she now sees a need to start putting federal funding into the creation of receiving communities. Terrebonne Parish has already seen its first wave of migrants. She went on to add that, thanks to state and federal support and funding, creating a plan to prepare to become a receiving community could now be feasible and viable. Investments have already been made towards the development of levees, pumps, and drainage systems. Still, before Terrebonne Parish can consider receiving more people, basic water, sewage, natural gas, and transportation infrastructure improvements are needed. Domangue also mentioned she is working on creating a Crisis Recovery Center, which would also serve as a homeless shelter, neither of which Terrebonne Parish currently has. Once they receive federal disaster funding from Hurricane Ida, she hopes parish residents’ quality of life will improve.

Chris Pulaski, Director of Planning and Zoning, Terrebonne Parish Consolidated Government

Pulaski explained that the first task after Hurricane Ida was setting up migration and resettlement base camps—basically emergency shelters—as

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⁵⁷ While moderating this roundtable discussion, Craig Colten noted that Monroe has also done this for other communities and may be trying to position itself to be a destination for people that are temporarily or longer-term displaced.

quickly as possible for Terrebonne Parish residents. Louisiana’s GOHSEP took the lead. The next task was to prepare temporary housing, done through a sheltering program that GOHSEP created and a FEMA direct housing program. Receiving communities for temporary site locations—ranging from 36 to 240 units in size—raised some concerns. Pulaski said these concerns were similar to concerns the planning commission gets for major residential subdivision applications. Therefore, they were able to address many of them. Some group sites are open, others are nearing completion, and others are still in the design stage.

The 2012 Terrebone Parish Comprehensive Master Plan⁵⁸ projected land-use and housing needs thirty years into the future, and revealed a shortage of affordable housing—including housing for the elderly, especially as the population ages. Knowing this now has allowed parish leaders to begin developing strategies and goals that address these issues. Pulaski emphasized that planning is not about building or funding, but about looking for opportunities to meet goals. For example, as The New Isle resettlement gets underway, parish officials are starting to get questions from residents who have never had to deal with matters such as property zoning, subdivision covenants, and permits. They are also hearing concerns from other residents about what will happen to land as populations relocate. For example, currently, there are no regulations in Terrebonne Parish relating to recreational vehicle parks, but Pulaski noted that this issue will likely have to be considered in future planning efforts.

Mark Goodson, Principal, Planning and Resilience Practice Lead, CSRS

Goodson spoke about voluntary resettlement and stated that planning as early as possible for implementation is critical, no matter whether it is a project like Isle de Jean Charles in Terrebonne Parish, or a more traditional buyout program. While the need to resettle may seem obvious to outsiders, he emphasized it as a deeply personal decision for people who ultimately have to decide if they will stay or if they will go. He stated that planning for resettlement “is going to take resources, and it’s going to take conversations at kitchen tables to help give folks in those resettling communities the information that they need to get them comfortable with a yes or no decision.” Regarding resettlement projects, Goodson shared several key considerations from his experiences working on voluntary relocation and resettlement efforts in the private sector and from his collaborations with the public sector:

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⁵⁸ More information is available in the Terrebonne Parish Comprehensive Master Plan, available at: http://www.tpcg.org/index.php?f=vision2030&p=plan2030

• Consider how the use of federal funding can add complications, time, and cost;
• Provide access to data about the population that is considering resettlement, such as the number of people or households involved as well as the type of population;
• Understand the parameters of the new community, for example, whether it will be a planned site or if the community will be encouraged and incentivized to move in a distributed manner; and
• Recognize the expectations of the residents that are being resettled and the other entities involved (e.g., government agencies) relative to the level of involvement that residents will actually have in the resettlement process.

Goodson emphasized that he does not think the involvement of residents should be limited to any extent—but, at the same time, everyone does need to be on the same page from the beginning. He also noted the importance of preparing potential receiving communities. Policy and practical barriers exist, especially for community-scale resettlement like The New Isle for Isle de Jean Charles. For example, if Isle de Jean Charles residents had been required to give up their property, most would not have left. It took discussions with the U.S. Department of Housing and Urban Development (HUD) and others to develop a new solution that allowed former island residents to have continued but limited use of their island properties, which could just no longer serve as primary residences. He said policy consideration is needed for land-use planning and so could be leveraged to encourage and steer development patterns away from low-lying or high-risk areas into lower-risk areas. He also noted the role the private sector could play in facilitating, in an equitable way, land-use planning.

Pat Forbes, Executive Director, Louisiana Office of Community Development

Forbes explained that the Louisiana Office of Community Development (LA-OCD) was created after Hurricane Katrina and Rita. Since then, there has been an evolution in the distribution of federal funding away from replacing what existed before a disaster—which involved prohibiting the use of funds for mitigation projects—towards providing funds to be used specifically to mitigate damage and reduce future risk. Due to the growing recognition of mitigation at the federal level, LA-OCD has been able to work on projects like the resettlement of Isle de Jean Charles. Forbes stressed that resettlement is devastating to consider for most people, especially for an Indigenous community or community whose ancestors have lived in a specific area for generations. The single biggest challenge he has

seen is that no one wants to leave their home, even when it means that in doing so, they will be more protected.

Forbes said to get people to a safer place, “we will be assisting those people who couldn’t do it on their own.” There are complications to doing this through the government, such as scale and cost. He went on to say that “spending 48 million dollars to move 40 families is not helping us a lot in learning how Miami is going to move.” He suggested involving the private sector to drive down costs. Additionally, he noted, it is essential to remember that support may also be needed beyond the move itself. For example, moving low to moderate-income people with low monthly expenses into a $300,000 home will result in higher living expenses. In a situation such as this, he cautioned that considerations might need to be taken into account so people are not set up for failure.

The state of Louisiana and other governmental and non-governmental entities have invested in science, data-collection, and engineering, which have provided the ability to better understand and plan for future risks, Forbes remarked. One example he discussed was Louisiana’s Strategic Adaptations for Future Environments (LA-SAFE) project, which looked at low, moderate, and high categories of storm surge flood risk.⁵⁹ He said that at the same time, uncertainty remains as to some potential impacts from more intense storms, which might include sea level rise, heavier precipitation events, and increased or more frequent flooding. See Figure 6-1. Seemingly less urgent is finding the political will to invest in infrastructure in communities where people are relocating, but Forbes stressed that supporting these communities is just as important as aiding those relocating. He noted that after Hurricane Katrina, 97 percent of St. Bernard Parish, which lies east of New Orleans, was depopulated and many residents moved to the north shore of Lake Pontchartrain. Those receiving communities lacked adequate infrastructure, housing, and schools, and were unprepared to receive additional residents.

BALANCING SAFE DEVELOPMENT AND ECONOMIC DEVELOPMENT

Colten began a roundtable discussion after the presentations by inquiring about how to balance the tension that often occurs between development—oriented to keeping the community safe—and economic development, which is oriented towards serving the desires of the development community. Colten then asked how to find a balance between these two types of development in a place like southern Louisiana, where there are changing environmental conditions. Pulaski replied that, to guide safe

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⁵⁹ For additional details about the LA SAFE project, see: https://lasafe.la.gov/about-us/

future development, economic development must be accounted for. He noted that the proximity of commercial areas, access to transportation, and nearby amenities all come into play for site development. In Terrebonne Parish, subdivision regulations drive the decisions of the planning commission. Pulaski added they are already looking at their subdivision regulations to find ways to improve the ongoing movement of populations in the region.

Goodson said decisions about infrastructure, investments, and development regulations must be based on an area’s current and future risk. He pointed out that there is not usually a one-size-fits-all answer. Additionally, Goodson emphasized the need for two approaches: (1) sustainable development patterns for those who can pay for it themselves and (2) determining where the government or private sector can get involved for those who cannot. Forbes mentioned that land has been developed in high-risk areas, but with planning and zoning, that is changing. To him, a critical part of making places safer is not only improving scientific information and knowledge about future risks but also applying that knowledge to regulations.

The Certified Sites Program, run through Louisiana Economic Development, identifies sites around the state that may be ideally suited for industrial development.⁶⁰ This program undertakes an initial due diligence process on those sites so that an inventory will be available when a site selector is looking for a potential location. Goodson suggested that doing something similar with resilient community sites could help steer settlement patterns to lower-risk areas. Domangue replied that there is a mechanism in place through the Terrebonne Economic Development Association to do that, but more people need to engage and talk about the subject.

MODELING TOOLS FOR PLANNING

Colten asked the panelists if existing policies, procedures, and zoning regulations are flexible enough to adapt to the pace of climate change and the changing needs of people in high-risk areas. Pulaski replied that modeling tools could be used to examine the potential impacts a proposed large-scale development might have. Goodson said his organization and others are using such modeling tools to make data-driven decisions about whether or not to approve a project. Modeling tools like these make it possible to see how a proposed development project may perform. Forbes cautioned that some models may not be valid twenty years from now, so, “part of planning has to be the assumption about the things that can-

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⁶⁰ More information about the Certified Sites Program is available at: https://www.opportunitylouisiana.com/info-for-partners-allies/certified-sites-programs/certified-industrial-sites

not be predicted.” He suggested therefore incorporating uncertainty into planning—for example, by adding a buffer instead of going right to the edge of a 100-year floodplain.

Though Louisiana has models for land loss and associated changes, Colten emphasized it is also worth considering how to integrate community-level issues and concerns into codes, zoning, and modeling for future conditions. Cunningham’s office has found that many resident concerns are not just about flooding, but also have to do with whether people will be close to places such as grocery stores or hospitals. Domangue’s community lost all its basic infrastructure—such as the jail and hospital—during Hurricane Ida. They were prepared for flooding but not sustained strong winds. Therefore, they have an opportunity to rebuild stronger and better.

PLANNING AND INVESTMENTS FOR RECEIVING COMMUNITIES AND DECLINING COMMUNITIES

Colten asked how local and state planning efforts can take displaced people into consideration. He mentioned the Coastal Master Plan’s component that deals with the relocation of people, called voluntary acquisition. It estimates there are about 2,700 households that might need to be purchased because either they are outside defenses, or because elevating them is not economically feasible. Domangue mentioned plans are underway to revitalize the downtown main street area and to create affordable housing opportunities in Terrebonne Parish; however, the parish is waiting on funding. Pulaski pointed out that revitalizing the downtown area will help create an attractive receiving community with access to transportation, grocery stores, and schools.

From a housing perspective, Forbes said investments are being made in affordable rental housing. None will be in a 100-year floodplain; any that are in a 500-year floodplain will be three feet above the natural ground; and all will be built to a 150-mile-an-hour-wind-fortified standard. Including infrastructure and amenities near safer locations may create an attractive model that will help persuade people who are trying to decide whether or not to relocate; it will also attract private developers looking for opportunities in places with infrastructure already in place.

Jonathan Foret asked how to plan for a declining community in such a way as to allow the people who remain to be successful if there is no longer a tax base to support the area. Replying that she does not see how some communities will survive on their own, Domangue suggested that consolidation may need to be considered. She said other viable options might exist, but conversations need to be started. Forbes added he does not know if official planning is underway, but in Plaquemines and Cameron Parish, discussions have been ongoing for years.

RELOCATION DIFFICULTIES

Pulaski mentioned that one of the Terrebonne Parish projects in the LA SAFE program was a voluntary buyout for all primary residence homeowners outside the Morganza to the Gulf system. Out of 16 homeowners, only one was interested. The others were not willing to relocate. Cunningham said she has also seen relocation-related difficulties. For example, after Hurricane Ida, the state of Wisconsin issued temporary housing vouchers for people in the family public housing facility. Housing counselors explained to everyone that they could come back in the future and would be assisted in finding housing. Cunningham pointed out that most people refused to consider moving outside of Terrebonne—even temporarily. Domangue suggested investing in Terrebonne Parish, where many people want to stay, and considering other places where people can go in case of an emergency.

LaFleur inquired about the overall outcome in the case of Isle de Jean Charles. Forbes responded that “one of the things we learned is the importance of engaging people, one-to-one, as opposed to through leadership, to come up with a plan that reflects the priorities of the people in the community.” He went on to say they engaged with people on Isle de Jean Charles who were going to be moving and came up with a resettlement project that he thinks reflects, if not the priorities of the tribal leadership, nonetheless the priorities of the people who are going to be living in New Isle.

PUBLIC HEALTH IMPACTS OF DISPLACEMENT

A committee member, Lynn Goldman, asked about public health efforts for those who have been displaced and need resources that may not be available in the receiving community. Cunningham answered that their food banks had been overwhelmed, and Community Services Block Grant funding has been used to issue food vouchers for those meeting income requirements. With regard to mental health, though Domangue has seen an increase in depression and anxiety, she feels that the true psychological impact of Hurricane Ida may not be seen for quite some time since the area is still recovering. She stressed that those who have been displaced do not have access to adequate mental health services or homeless resources. Pulaski agreed that large-scale programs and funding are needed. He pointed out that, at the same time, smaller-level initiatives are also beneficial. He mentioned the Live Healthy Houma initiative⁶¹ that has established community gardens and worked to ensure healthy food options are available.

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⁶¹ More information about Live Healthy Houma is available at: https://www.lsuagcenter.com/topics/food_health/healthy-communities/terrebonne-healthy-communities

LESSONS FROM THE RECOVERY PROCESS AFTER HURRICANE IDA

Foret noted that making decisions beforehand, even if they are small such as whether or not to install LED lightbulbs, can help speed up recovery. Domangue shared that the parish had bulk-ordered decorative streetlights to have them on standby because replacing them after Hurricane Ida had been a challenge. She went on to add that being an elected official can be confusing. For example, after Ida, she did not know who to call in certain situations. Pulaski suggested it is critical to have better information and data on assets and locations before the next disaster. He said they already have people working with public utilities, engineers, and elected officials, adding that identifying potential group site locations would also be helpful. Having, in addition, a list of parish properties could help identify possible staging areas and places to put debris.

Forbes commented that there are no plans to replicate the LA SAFE program; at the same time, disaster recovery planning engages people, like the LA SAFE program did, to learn the recovery priorities. In terms of funding, he thinks the Infrastructure Investment and Jobs Act (IIJA; Public Law 117-58) may provide opportunities to do some of the projects identified in LA SAFE that were important to the community, including housing, infrastructure, and risk reduction. Forbes said efforts are underway to maximize the state’s ability to draw down competitive funds from the IIJA. In addition, Pulaski said as the community recovery planning effort continues, lessons learned from LA SAFE and other initiatives will be used to update the hazard mitigation recovery plan.

An audience member asked if lessons learned, as well as models being developed for response, are being shared with other parishes, and if efforts are being made at the state level to establish partnerships to better plan for post-disaster displacement. Pulaski responded that, to his knowledge, conversations, follow-up, and after-action reporting were done but not in a formal way. He would like to see a concerted group effort to establish “cousin communities,” which could help with consistency—meaning, for example, establishing throughout the region similar building inspection processes which could help to avoid confusion for contractors. Domangue noted that Terrebonne Parish has formed working relationships with other parishes that have gone through similar situations. Cunningham emphasized the importance of good relationships with others, such as the Office of Community Development and the Louisiana Housing Corporation, because they work with communities statewide and have learned lessons that can be shared.

CLOSING REMARKS

Colten closed the workshop by highlighting several points made by the session’s panelists:

• Resettlement, relocation, movement, and migration have been, for the people of coastal Louisiana, a fundamental part of their culture and history;
• Panelists expressed agreement that there needs to be the ability to follow up on existing programs and ensure they are being carried out in ways that benefit impacted communities;
• Multiple panelists commented that in order to make resettlement part of the planning process, an effective effort needs to be undertaken to sell the idea of resettlement and make it appealing;
• Several panelists suggested that developments and spaces and places for shelter need to be located where there are services such as grocery stores and hospitals;
• Workshop panelists expressed agreement that plans and arrangements for accommodating people who are displaced either temporarily or long-term need to be made in advance. They also agreed that related information needs to be disseminated;
• Some panelists pointed out that development plans need to align with and take advantage of existing opportunities (e.g., where there is available land and services);
• Many panelists felt that community involvement and engagement can be essential from the start of planning to help strategize, conduct, and carry out any plans for resettlement; and
• On the topic of leadership engagement with community members, multiple participants voiced support for the idea of making sure leaders are not imposing their will on the community members.

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