This section of the plan contains the plan’s mission statement, its goals and mitigation measures. The plan’s mission, goals and mitigation measures are the heart of a hazard mitigation plan.  Hazard mitigation is “any sustained action taken to reduce or eliminate the long-term risk to human life and property from hazards.”

Hazard mitigation goals are the guiding principles of the plan that provide the “vision” for success for all actions taken under the plan.  The goals help align mitigation measures to ensure that efforts are focused and coordinated toward the desired outcome. 

Hazard mitigation measures are specific actions that, if implemented, will (1) reduce the chances of damage from one or more hazardous events; (2) protect people living and working on the reservation from the effects of hazardous events; and (3) make the reservation more resilient and able to recover more quickly from the effects of hazardous events.

There are a number of different mitigation strategies that can be used to help mitigate the effects of hazards on both existing and new buildings and infrastructure.   FEMA has described six categories of mitigation measures that can be used to reduce the impacts from a number of hazards.  

Types of Mitigation Actions[1]

• Public Information and Education – are activities and programs that inform and educate citizens, property owners, renters, businesses, and tribal officials about hazardous events and ways to protect people and property from them.

• Preventive Measures – are designed to prevent damage to property and loss of life in future development.   These measures may involve new or updated regulations governing land use planning, zoning, open space preservation, building codes, drainage plans and floodplain development regulations, and storm water management.

• Structural Projects – are engineered solutions that reduce potential damage to multiple properties and businesses. These projects are usually designed by engineers or architects, constructed by the public sector, and maintained and managed by governmental entities. Structural projects may include storm water detention reservoirs, levees and floodwalls, channel modifications, drainage and storm sewer improvements, and improvements to designated community shelters.

• Property Protection – are measures used to modify the conditions of specific buildings or property that has and will likely continue to be subject to damage by a hazardous event.  Depending on the hazard, property protection measures may include building acquisition and relocation, flood-proofing, elevation of buildings, retrofitting, adding safe rooms, hail resistant roofing, increased insurance, improved tie-downs for manufactured homes, etc.  

• Emergency Services – include preparedness information, threat recognition, warning signs, response, critical facilities protection, and mitigation.

• Natural Resources Protection – are protection activities that are aimed at preserving and restoring the natural areas that previously supplied various forms of protection from hazardous events.  These measures enable the beneficial functions of floodplains and drainage ways to be better utilized.

Projects that fall under one of the preceding categories may qualify for funding from the Federal Emergency Management Agency (FEMA) or other funding sources.  FEMA provides advice regarding what mitigation projects should accomplish to qualify for a FEMA grant. Generally, projects need to:

·   Substantially reduce the risk of future damage, hardship, loss, or suffering from a major disaster;

·   Conform with federal floodplain, wetland, and environmental regulations;

·   Solve a problem, or part of a problem when there is assurance that the whole project will be completed;

·   Be cost-effective in that it addresses a problem that is repetitive or that poses a significant risk if left unsolved;

·   Contribute substantially to the problem's long-term solution;

·   Provide cost-effective protection over the expected project life;

·   Have manageable future maintenance requirements;

·   Be determined to be the most practical, effective, and environmentally sound alternative among the possible options;

·   [If mitigating flooding] Conform to the goals of the National Flood Insurance Program; and

·   Have the documented support of the local community.

1 - Umatilla Indian Reservation Hazard Mitigation Plan’s Mission Statement

It is the mission of this hazard mitigation plan to substantially reduce the risks and impacts of natural and man-made hazards on the UIR.  This plan is designed to help protect man-made and natural resource assets located on the reservation from all natural and man-made hazards.  Implementation of this plan will help the reservation become more resistant to disasters and enable it to “rebound” more quickly after a hazardous event.  

2. - Umatilla Indian Reservation Hazard Mitigation Goals

The Umatilla Indian Reservation Hazard Mitigation Plan has four goals which are as follows:

Goal 1 – Reduce the impact of hazardous events on people living and working on the reservation, to travelers, on assets located on the reservation, and on the reservation’s natural resources.

Goal 2 – Promote resilience, as an ethic of the UIR, to ensure the tribal government, economy and health care system can withstand the effects of hazardous events.

Goal 3 – Increase the level of coordination within the Tribal government and between the Tribe and federal, state, nearby jurisdictions, and private service providers to promote joint natural hazard mitigation programs.

Goal 4 – Enhance public awareness about hazardous events and activities that reduce the impact of natural and man-made hazards.

3. - Umatilla Indian Reservation Hazard Mitigation Measures

The mitigation measures provided in this plan will help reduce the effects from all of the high and medium hazardous events and some of the low hazardous events identified in the risk analysis.   Some of the mitigation measures are multi-hazard measures that address more than one hazard.  Some of the mitigation measures are designed to reduce the effects of hazards on new and existing structures and infrastructure.  For example, planning, zoning and building code mitigation measures will help reduce or eliminate the impacts from hazards on new structures and infrastructure.  Other mitigation measures, such as raising or removing homes in the flood plain, fixing culverts to reduce flooding and strengthening power lines, are focused on reducing damage to existing structures and infrastructure. 

A - Multi-Hazard Mitigation Measures

MH-1   Prepare and distribute hazard and safety preparedness information that provide instructions for reducing the effects of all hazards that present threats to the reservation.

MH- 2    Prepare a business continuity plan that helps maintain the Tribe’s economy during and after a disaster.

MH-3     Develop a government continuity plan that details how core governmental operations will be maintained in the event of an emergency.

MH- 4    Maintain a hazardous events section on the CTUIR website devoted to informing people living and working on the reservation about measures that can be taken to prevent impacts from those hazards that threaten the reservation. Also, provide information about disaster preparedness.

MH-5    Identify opportunities for partnering with citizens, private contractors, and other jurisdictions to increase availability of equipment and manpower for efficient responses to hazardous events.

MH-6   Require real estate disclosures for properties where past hazard damage has occurred.

MH-7   Collaborate with neighboring jurisdictions to create a regional emergency management and information hub

MH-8  Work with the National Weather Service to make the Umatilla Indian Reservation “Storm-Ready.”

B - Prevention Measures

Prevention measures are generally multi-hazard mitigation measures designed to protect new development and infrastructure from a number of hazardous events.

Planning

Consider amending the CTUIR Comprehensive Plan’s land use and development sections to adopt policies that recognize and encourage hazard mitigation measures that will make the reservation more disaster resistant. 

Zoning

Update the CTUIR Land Use Development Code to include provisions for flooding that meet requirements of the National Flood Insurance Program.  Also consider measures that ensure that future development is protected from landslides and is defensible from wildfires.

Building codes

Ensure that new development complies with the International Uniform Building Code as it provides measures designed to protect structures from damage due to hazardous events such as flooding, high winds, hail, earthquakes, etc.

C - Flood Measures – a number of the flood mitigation measures will help protect existing buildings and infrastructure from future flooding.

FL-1    Devise a voluntary program to assist home owners with structures that have previously flooded with options to protect their homes from future flood damage.  This program will be designed to offer options that eliminate the threat from flooding such as elevation, acquisition and relocation of structures from flood hazard areas.

FL-2    Update and then adopt floodplain ordinances that comply with the requirements of the National Flood Insurance Program (NFIP) in order to make available flood insurance to property owners within the reservation.

FL-3    Consider joining the Community Rating System (CRS) once the reservation joins the NFIP.  The CRS is a program that rewards jurisdictions that are pro-active in mitigating future flood damage.  Property owners in jurisdictions that participate in the CRS receive lower flood insurance premiums.

Specific Flood Mitigation Measures from the Gardenhire Flood Fight Study

FL-4    Consider replacing the culvert at “Shortmile Road and the railroad crossing” and deepen the channel to allow the passage of all flows associated with flooding caused by Mission Creek (Gardenhire)

Possible Protection Measures for the Community of Cayuse

FL-5    Completed: Establish a berm along the upstream side of the bench in Cayuse, including the area of the "plug"(Gardenhire).  This measure was completed by Umatilla County as an emergency measures to save the road.

FL-6   Move the affected people out of danger by relocating or elevating threatened homes (Gardenhire).

Possible Protection Measures for Upper McKay Creek

There are three sites upstream of the Upper McKay Creek site where the creek eroded the county road and required its temporary closure.

FL-7   Identify measures to mitigate erosion of the county road serving Upper McKay Creek (Gardenhire).  

Possible Protection Measures for Iskuulpa Creek  

FL-8    Construct berms along Iskuulpa Creek and install culverts under highway and railroad, and remove gravel from the bed of Iskuulpa Creek (Gardenhire).  

Other possible mitigation measures addressing flooding

FL-9    Pursue vegetation and restoration practices that assist in enhancing and restoring the natural and beneficial functions of the watershed.

FL- 10 Work with local jurisdictions/agencies to maintain and operate selected stream gauging stations on the reservation.

D - Earthquake Measures – present a medium threat to the reservation. These mitigation measures may be cost-effective and will help protect existing buildings and infrastructure from future earthquake damage.

E-l      Conduct a study to determine which buildings and infrastructure on the UIR face a risk from earthquakes.

E – Fog Measures

F-l      Provide additional cameras on I-84 (e.g., milepost 222) to assist the motoring public and emergency responders during time of inclement weather.

F-2   Expand the radio frequency traveler’s information program to inform the motoring public of hazardous conditions.

F-3    Work with ODOT and OSP to provide a lead car to guide vehicles through cabbage hill during times of dense and freezing fog.

F - Epidemiological Disaster Measures

EP-1    Develop a health system continuity plan for the Yellow Hawk Health Clinic for use during an epidemiological crisis.  The plan should provide strategies that maintain service levels for tribal members with chronic illnesses dependent on the clinic for their care.

EP-2    Develop a strategy to deal with pandemic epidemiological disasters that could negatively impact the Wild Horse Casino and Resort

G - Severe Winter Storm Measures – Most of these mitigation measures will help protect existing infrastructure from damage and power outages from winter storms.

WS-l    Replace existing power lines with heavier T-2 line, shorter spans, and heavier

poles and crossbars. It is estimated this will increase the overall strength of power

distribution lines by 66%.

WS-2   Burying utility lines. This removes the risk of power outages due to ice

accumulation or tree limbs bringing down power lines.

WS-3   Pruning trees away from power lines and enforcing policies regarding tree limb

clearances.

WS-4  Develop a contingency plan for responding to widespread power outages due to severe storms.

WS-5  Expand the NOAA emergency management signal covering the UIR

H - Severe Spring/Summer Storm Measures

The mitigation measures that address Severe Winter Storms also address problems associated with severe winds that occur during spring and summer storms.

I - Wildfire Measures - Some of these mitigation measures will help protect existing buildings from damage from wildfires.

WF -1  Adopt and apply state wildfire protection measures for all new development within the Umatilla County Community Wildfire Protection Plan’s designated high and medium wildland-urban interface (WUI) areas.

WF-2   Continue implementation of the Umatilla County Community Wildfire Protection Plan

WF-3   Develop a program that promotes retrofitting home roofing, siding with noncombustible materials and double-paned fire-resistant glass windows.

WF-4   Develop a reservation slash pickup or chipping program in WUI designated areas where housing exists. Promote thinning/pruning/tree removal/clearing on private property

WF-5   Within designated WUI areas, ensure adequate access/egress roads for fire-fighting vehicles.

WF-6   Within designated WUI areas, provide emergency access/egress road signs and maps for homeowners living in remote areas on the reservation

WF-7   Inventory existing water supplies on the reservation suitable for use in fighting fires

WF-8   Educate private property owners on limitations of bridges and dangers associated with the use of fire equipment used in extinguishing wildfires.

WF-9   Develop a process to encourage private property owners to upgrade their bridges to support the weight of fire trucks and emergency vehicles.

J - Dust Storm Measures

DS-1   Promote development of erosion control management plans and incentives in areas where blowing dust is known to create a hazard for the traveling public (Oregon State Natural Hazard Mitigation Plan).

style="FONT-FAMILY: Garamond"> 

DS-2   Expand and use the Emergency Alert System (EAS) to provide timely information to the traveling public about hazardous blowing dust conditions. 

DS-3  Explore methods of improving communication of hazardous blowing dust conditions between public safety answering points, ODOT, OSP, and local law enforcement agencies.

K – Drought Measures

D-1    Prepare a plan for use during severe drought conditions that identifies water conservation measures to be imposed by the Tribal government.

D-2   Provide technical assistance and low-interest loans to farmers and ranchers so that they can develop livestock watering systems.

D-3    Increase storage of water, especially off stream storage.

L – Man-Made Hazard Measures

Hazardous Materials

HM-1   Provide an enclosed and “haz mat ready” safety facility for trucks with leaking loads on the most accident-prone area of I-84 within the reservation boundary.

HM-2   Increase patrol of truck parking areas for leaking hazardous materials when I-84 is closed.

HM-3   Consider creating an expanded truck parking near the Arrowhead Travel Plaza that is equipped with environmental safeguards capable of protecting the reservation from trucks with leaking hazardous materials.

Dam Safety

DS-1   Complete dam safety measures to ensure the integrity of Indian Lake Dam .

NOTE:   Funding for this mitigation measure has been obtained through the Bureau of Indian Affairs 

        Dam Safety Program and completion of this project is underway

UIR Mitigation Measure Prioritization Process[2]

The Federal Emergency Management Agency (FEMA) requires that the plan contain a process for prioritizing mitigation measures.   Because the opportunity to implement mitigation measures hinges on a number of factors, a flexible prioritization process would work best for the UIR.  The University of Oregon ’s Natural Hazards Workshop devised a flexible prioritization process that has been adapted to address the needs of the UIR.  The process is preferred because the Tribe has numerous diverse departments and programs capable of implementing mitigation measures identified in this plan as well as the ability to add a mitigation component to other projects not identified in this plan.  The key to success for the UIR Hazard Mitigation Plan is to make hazard mitigation an “ethic” to be considered in all future Tribal projects.  Because development of a “rigid” prioritization process could serve to reduce possible mitigation opportunities, the CTUIR preferred to borrow the system created at the University of Oregon .

Future mitigation measures in the UIR Hazard Mitigation Plan may be identified by a TERC member, other Tribal departments or any member of the CTUIR.  Future mitigation measures are to be presented to the Emergency Management Coordinator, who will schedule the proposed measure for review by the TERC at a regular TERC meeting. 

Depending on the proposed project’s purpose and the possible methods for implementation, more than one funding source may be considered.  Several of the possible funding sources are identified in Section 10 and Appendix F.

 Step 1

This first step is the initial screen for new mitigation measure not adopted when the UIR Hazard Mitigation Plan was first created.  Mitigation measures contained in the adopted plan

Skip Step 1 and move directly to Step 2.  These mitigation measures have been already been reviewed by the TERC and approved by the CTUIR Board of Trustees.  It was determined that these mitigation measures are consistent with the plan’s purpose and goals and, if implemented, will make the reservation more disaster resistant or the people living, visiting or working on the reservation more prepared to respond to a hazardous event.

Hazard mitigation measures proposed for inclusion in the UIR Hazard Mitigation Plan will undergo a review by the TERC.  As projects to benefit the reservation are proposed, opportunities should be taken to ensure that such projects are located and designed to resist damage from possible hazards.  In some cases, additional mitigation grant dollars may be available to help reduce risks associated with various hazards. 

Future mitigation measures or projects should be submitted to the Emergency Management Coordinator.  The Emergency Management Coordinator will schedule a review by the TERC at one of their regular meetings.  The TERC will determine which hazard or hazards are involved and whether the proposed mitigation measure or project is consistent with the plan’s goals.  Those measures or projects that will help reduce risks from high and medium hazardous events will be identified and move on to Step 2.

Step 2

The Emergency Management Coordinator in consultation with the Tribal Planning Office will compose the “funding team.  The funding team will identify one or more possible funding sources that could be used to help fund each hazard mitigation project.  A list of possible funding sources is contained in Section 10 and in Appendix F.  Grant funds from sources not in Section 10 or Appendix F may also be used.  The funding team will obtain the grant criteria from the agencies administering the grants (NOTE: Most grant criteria can be found on the specific agency’s website).   The funding team will review the grant criteria and determine if the mitigation measure is eligible for one or more grants.   The findings of the funding team will be presented to the TERC. 

Step 3

Prioritization of mitigation measures occured when the TERC members evaluated each mitigation measure using, first, the Benefit-Cost Assessment form and second, the Mitigation Measure Prioritization form.  These forms allow each individual evaluating the mitigation measure to consider the benefits and costs of the mitigation measure and then assess its overall value to the Tribe’s hazard mitigation effort.  By combining the scores of these two forms and then averaging the results from each individual TERC member’s perspective, prioritization of all mitigation measures will occur. The following explains how the two forms work:

Explanation of the Benefit-Cost Assessment (Form 1)

The Benefit-Cost Assessment Form is part of a two step prioritization process.  This form is the first step.  It is designed to help the hazard mitigation plan’s steering committee evaluate and prioritize mitigation measures using criteria which allow comparisons among various types of proposed mitigation actions.  This form or table has a place to list the mitigation actions or projects, a scale for measuring estimated benefits and estimated costs, and two categories for concluding whether the participant believes the projects benefits are greater than its costs and if the project is eligible for a FEMA grant.

Estimated Benefits

Under the Estimated Benefits category, the form provides for a quick assessment of whether the proposed mitigation measure’s will prevent or reduce the following:

-      Injuries/Deaths

-      Displacement Costs

-      Disruption Costs

-      Loss of Service

-      Business Closure

-      Bridge/Road Closure

-      Recovery Costs

-      Replacement Costs

Based on the perceived ability of the mitigation measures value in preventing or reducing losses from hazardous events, the user of this form will circle a 50 if the benefits from the mitigation action are very high, a 40 if the benefits are high, a 30 if a medium level of benefits are derived, a 20 if the benefits are low and a 10 if they are very low.

Estimated Costs

A similar process as used to assess benefits is used for assessing project costs.  Because mitigation measures were not analyzed for their actual costs, five categories of costs were provided to help compare project benefits with project costs.  The five categories are as follows:

<   $10,000

$10,000 to $25,000

$25,001 to $100,000

$100,001 to $ 250,000

> $250,000

If a project is less than $10,000, it falls into the “very low” category for cost, and a 50 is circled; if a projects costs between $10,000 and $25,000, it has “low” costs and a 40 is circled.  “Medium” costs are $25,001 to $100,000 and receive a 30.  Between $100,001 and $250,000 are considered “high” costs and receive a 20.   Costs greater than $250,000 are considered “very high” costs and receive a 10.  By completing this form in this manner, an emphasis of the benefits and costs has been incorporated into the prioritization process as required by FEMA.

B>C and FEMA Eligible?

The “benefit greater than cost” category gives those assessing proposed mitigation measures the opportunity to conclude whether they believe the proposed mitigation measure provides greater benefits in mitigating against future hazardous events than the costs associated with implementing the proposed measures. If information is available about whether the proposed mitigation measure is eligible for a FEMA grant, indicating whether it is eligible or not is entered on the form.

Mitigation Measure Prioritization (Form 2)

Once the Benefit-Cost assessment is complete, assessing how the proposed mitigation projects satisfy FEMA and local objectives and whether they can or cannot easily obtain funding are considerations helpful in prioritizing proposed mitigation actions.  Like the previous benefit-cost assessment form, assessing points using the following criteria will help in determining which proposed mitigation actions are high, medium and low priority projects.

The criteria and the possible points under each criterion are as follows:

Eliminates Repetitive Loss (0-10 pts)

Greatest Economic Impact (0-10)

Greatest Good for Most People (0-10)

Least Expensive Option (0-10)

Funding Is Secure or Easy to Obtain (0-5)

Can Fund Sooner (0-5)

Has Greater Public and Political Support (0-5)

Benefits More Than One Jurisdiction (0-5)

Addresses Two or More Goals (0-5)

Local Ability to Perform Project (0-5)

Using the first four criteria, the participant is allow to award up to 10 points because these criteria address major mitigation objectives and save tax dollars.  Participants are allowed to award up to 5 points for the remaining criteria which focus primarily on the ability to implement the mitigation measure or the execution of the plan.

Once the Benefit-Cost Assessment and Mitigation Measure Prioritization forms are completed, the scores should be totaled for each mitigation project to determine their overall priority.  These forms are found in Appendix R.

Step 4

Based on the steps above, the TERC has recommended (and will recommend in the future) whether or not the mitigation activity should move forward.  If the TERC decides to move forward with the mitigation measure, the department responsible for implementing the measure will be responsible for taking further action.  If the mitigation grant is from the Federal Emergency Management Agency (FEMA), a full benefit-cost analysis that meets FEMA’s requirements will be necessary. The coordinating department will be responsible for documenting the success of the grant project upon its completion.  The coordinating department will also be responsible for closing out the grant and satisfying all grant requirements.  A copy of the report prepared to closeout the grant will also be sent to the Emergency Management Coordinator in order to be scheduled for review by the TERC.  The TERC will review the issues surrounding grant applications at one of their regularly scheduled meetings.  A representative of the coordinating department will be invited to attend the TERC meeting in order to share knowledge and/or experiences.  This process will afford greater coordination and make the Tribe’s grant process more efficient. When the TERC selects a project for inclusion in the plan, a letter of support will be signed by all members of the TERC. This letter can be utilized in grant applications to show community support for the mitigation action.

The TERC and the Tribe’s leadership have the option to implement any of the mitigation measure at any time, (regardless of the prioritized order).  This allows the Tribe to consider mitigation strategies as new opportunities arise, such as funding for mitigation measures that may not be of the highest priority.  This methodology will be used to prioritize the plan’s action items during the annual review and update process.