Chapter 1 - Introduction

1.1 Purpose

Natural, man-made and technological hazards are an inevitable fact and non-preparation can have a significant impact that threaten human life, public safety and property. Hazard mitigation is defined as any sustained action taken to reduce or eliminate the long-term risk to human life and property from hazards. Recognizing the importance of hazard mitigation, Mackinac County is addressing the issue through the update and subsequent implementation of this plan. The purpose of this plan is to recognize and identify areas of vulnerability and risk and to develop a comprehensive strategy that will reduce the impacts of natural hazards in Mackinac County.

This plan identifies activities that can be undertaken by both the public and the private

sectors to reduce safety hazards, health hazards, and property damage caused by natural hazards. The plan focuses on the major hazards that Mackinac County faces, fulfills the Federal mitigation planning requirements, and provides the County and its municipalities with a blueprint for reducing the impacts of these natural hazards on people and property.

“Hazard mitigation” does not mean that natural hazards are stopped or prevented. It

does not suggest complete elimination of the damage or disruption caused by such incidents. Natural forces are powerful and most natural hazards are well beyond our ability to control. Natural hazards can be compounded by manmade hazards and vice versa. Hazard mitigation is not about quick fixes, but rather a long-term approach to reduce hazard vulnerability. Hazard mitigation also means a comprehensive approach to minimizing the impact of hazards.

1.2 Background

The 2019 Mackinac County Hazard Mitigation Plan represents the third update since the original hazard mitigation plan was developed in 2005. The 2019 Plan draws from the previous 2005 and 2014 plans, and from other local policies that incorporate sustainable hazard mitigation principles into routine government activities.

Historical information shows that Mackinac County is at risk of damage from a variety of

natural hazards (including, but not limited to): severe winter weather, severe summer storms, wildfire and flooding. This plan contains a rigorous analysis of the potential effects of these natural hazards on the structures and infrastructure within Mackinac County and proposes measures to reduce the risk of a natural hazard leading to a disaster including property loss, business disruption, or even loss of life.

Most recently, Mackinac County has experienced severe winter storms and extreme

temperatures, but history demonstrates that Mackinac County is also susceptible to flooding and damage resulting from high winds. Documented Presidential Disaster Declarations for Mackinac County confirm the County’s susceptibility to multiple types of natural hazards as seen in Table 1 below. Although it is impossible to predict when these disasters may occur,

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planning and community cooperation make it possible to minimize the effects of natural disasters.

Date Hazard

1977 Drought

1978 Snowstorm

1994 Freezing

2005 Hurricane Table 1 Past Presidential Disaster Declarations in Mackinac County, Michigan 1953 – 2018

In previous plans a comprehensive hazard analysis was made by the Mackinac Co. Office of Emergency Services and EUP Regional Planning to determine:

1) what hazards threaten the community 2) how often they are likely to occur 3) how severe the situation is likely to get, and 4) the impact on the community.

Based upon this criteria, Table 2 shows the hazards that could affect Mackinac County

and how they were ranked as follows in 2014:

Hazard Rating Score Overall Risk Summary

Severe Winter Weather 2.84 High

Thunderstorm/High Wind/Hail/Lightning

2.67 High

Infrastructure Failure 2.50 High

Wildfire 2.50 High

Extreme Temperatures 2.50 High

Public Health Emergencies 2.34 Moderate

Drought 2.17 Moderate

Fixed Site Hazardous Materials Incident

2.00 Moderate

Transportation/Hazardous Materials Incidents

1.84 Moderate

Pipeline Incidents 1.84 Moderate

Flooding 1.67 Low

Tornadoes 1.67 Low

Subsidence/Ground Movement 1.34 Low

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Civil Disturbances 1.33 Low Table 2Mackinac County Natural Hazards Ranking, 2014

1.3 Scope

The focus of the 2019 Mackinac County Natural Hazards Mitigation Plan Update is on those hazards determined to be “high” or “moderate” risks to the County, as determined through a detailed hazard risk assessment. All potential hazards warranted some analysis and assessment. Other hazards that pose a “low” or “negligible” risk will continue to be evaluated during future updates to the Plan, but they may not be fully addressed until they are determined to be of high or moderate risk. This enables the County to prioritize mitigation actions based on those hazards which are understood to present the greatest risk to lives and property. The geographic scope (i.e., the planning area) for the Plan includes the entire County and is a multi-jurisdictional plan.

1.4 Legislative Authority

This plan was first developed under the Disaster Mitigation Act (DMA) 2000 (Public Law 106-390). DMA 2000 provides the legal basis for FEMA mitigation planning requirements for State, local and Indian Tribal governments as a condition of mitigation grant assistance pre- and post- disaster. Because the Mackinac County planning area is subject to many kinds of hazards, access to these programs is vital.

These funds primarily fall under the Federal Emergency Management Agency (FEMA)

Hazard Mitigation Assistance (HMA) program. Grant programs under HMA include the Hazard Mitigation Grant Program (HMGP), the Pre-Disaster Mitigation (PDM) program, and the Flood Mitigation Administration (FMA) program.

In addition, the Flood Insurance Reform Act of 2004 (P.L. 108-264) created two new grant programs, Severe Repetitive Loss (SRL) and Repetitive Flood Claim (RFC) programs and modified the existing Flood Mitigation Assistance Program. These programs also require a FEMA-approved Hazard Mitigation Plan if communities wish to be eligible for these FEMA mitigation funding programs. In 2014, these programs were merged into a single program known as the Flood Mitigation Assistance (FMA) program. This change was brought on by new, major federal insurance legislation that was passed in 2012 under the Biggert-Waters Flood Insurance Reform Act (P.L. 112-141), which was subsequently revised by the 2014 Homeowner Flood Insurance Affordability Act.

This plan complies with all the requirements of FEMA’s Final Rule 44 CFR Part 201,

which outlines criteria for approval of hazard mitigation plans and has been adopted in accordance to local procedures.

1.5 Plan Layout

In efforts to make this plan as functional as possible, chapters include the background and introduction, planning process, county profile, vulnerability and risk assessment and finally

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goals and strategies. Appendices are included with more detail information. Tables and maps provide a visual aspect of the information and geography.

Chapter 1 - begins with describing the purpose of the plan, enabling legislation, scope of

the planning area, plan layout, and oversight committee. Meetings, workshops and public participation efforts are also described in this chapter.

Chapter 2 details Mackinac County’s profile with a general description and overview of the geography, topography, climate, surface waters and watershed basins, population and demographical information, land use patterns, transportation network, and utilities. Additionally, in this chapter are profiles of emergency management resources, federal, State, county, local agencies and departments that provide the necessary planning and first response to hazard incidents. Detailed community profiles of each local unit of government within the County is also provided in Appendix A.

Chapter 3 discusses in detail each of the top 5 hazards identified by the Mackinac County Mitigation Planning Committee (MCMPC) as a high priority. Description of community issues or repetitive problems relating to natural hazards that have been identified during the planning process are also in this chapter.

In Chapter 4 the goals and actions from the 2014 plan are reviewed and re-assessed for completeness. New goals and action strategies that have been developed to address the problems and issues in Chapter 3 are described in detail for implementation.

Chapter 5 discusses how this plan and recommended actions will be implemented over

the next 5 years. Appendices are included at the end of the plan which include specific documentation of

the planning process, Mackinac County Mitigation Planning Committee, community profiles, GIS maps, and sample resolutions for plan adoption.

Certain information which was considered confidential or too sensitive for widespread public distribution has been kept out of this document and would only be distributed at the discretion of the Mackinac County Office of Emergency Management.

1.6 Planning Process

This multi-jurisdictional plan studies the potential damage from natural hazards in Mackinac County and reviews a range of mitigation alternatives. It selects those mitigation alternatives that will work best for Mackinac County and ensures that public funds are well

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spent. It also considers the current directions of the County government and the participating municipalities and agencies. This planning effort was initiated and coordinated by the Mackinac County Emergency Services and Eastern U.P. Regional Planning & Development Commission (EUPRP&DC). The effort was funded by a grant from the MSP EMD through FEMA Pre-Disaster Mitigation program. EUPRP&DC led the planning process. In addition, a mitigation planning oversight committee was reconvened from previous planning efforts. The County followed a general 4-step planning process, based on FEMA guidance and requirements.

1) Organize the Planning Process and Resources 2) Assess Risks 3) Develop a Mitigation Strategy 4) Adopt and Implement the Plan

This was the generalized process used in the previous plan updates as well.

1.6.1 Mitigation Committee

This Plan was developed under the guidance of the MCMPC. This oversight committee is comprised of the County’s Local Emergency Planning Team (LEPT) which is a collection of first responders and local, regional, and state public entities that ensure the readiness of County entities by recommending equipment purchases, training and exercises, and public education on preparedness issues. The MCMPC committee reviewed, analyzed and updated the hazard priority maps, goals & objectives, hazard priority areas, mitigation measures, and the action agenda items over the period of the planning process.

Responsibilities of the MCMPC included:

• participate in Mackinac County Hazard Mitigation Plan meetings and workshops • provide best available data as required for the risk assessment portion of the Plan • help complete the local Community Questionnaire to determine capabilities • provide copies of any mitigation or hazard-related documents for review and

incorporation into the Plan • support the development of the Mitigation Strategy, including the design and

adoption of community goal statements • help design and propose appropriate mitigation actions for their department/agency

for incorporation into the Mitigation Action Plan • review and provide timely comments on all study findings and draft plan deliverables • support the adoption of the 2019 Mackinac County Natural Hazards Mitigation Plan The complete listing of MCMPC representative agencies who participated in the oversight

of this planning effort are presented in Appendix B, along with the primary representative(s).

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1.6.2 Multi-Jurisdictional Planning

This plan was prepared as a multi-jurisdictional plan. All local units of government in the County were invited to participate in the planning process. The decision whether or not to participate in this process was a local decision, based on local community needs.

Following is a list of participating local units of government in Mackinac County. All the local units of government are continuing participants from the 2014 Natural Hazards Mitigation Plan.

List of Government Units

Government Unit Phone Number Office Location Community

Mackinac County (906) 643-7300 100 Marley Street St. Ignace

Bois Blanc Township (231) 634-7275 P.O. Box 898 Pointe Aux Pins

Brevort Township (906) 643-8098 4020N Church St. Moran

Clark Township (906) 484-2672 208 Blind Line Rd. Cedarville

Garfield Township (906) 477-6481 N6760 M-117 Engadine

Hendricks Township (906) 595-7217 N5115 Hiawatha Trail Naubinway

Hudson Township (906) 595-7315 N7961 Church Street Rexton

City of Mackinac Is. (906) 847-3702 7358 Market Street Mackinac Is.

Marquette Twp. (906) 647-5220 7177 E. James St. Pickford

Moran Township (906) 643-8027 W1362 West US-2 St. Ignace

Newton Township (906) 477-6410 N6164 S. Gould City Rd. Gould City

Portage Township (906) 586-9522 W17361 Davis St. Curtis

City of St. Ignace (906) 643-8545 396 N. State St. St. Ignace

St. Ignace Township (906) 643-8935 N4298 Gorman Rd. St. Ignace

Sault Tribe of Chippewa Indians

(906) 635-6050 523 Ashmun Street Sault Ste. Marie

Table 3 Mackinac County Local Units of Government

1.6.3 Public Participation

EUPRP&DC pursued every opportunity to garner public participation. As well as contacting community leaders and citizens who have direct interests in the Plan, the planning process also included press releases in the area’s newspaper the St. Ignace News with information on who to contact for more information on the Hazard Mitigation Plan, why it is important, and how to be involved in the planning process. A small questionnaire was developed and posted on-line. Also made available was an on-line map editing tool in which one could enter information directly onto a map by pinpointing a place and adding a description of the hazard incident.

A web page was created for EUPRP&DC’s web site at www.eup-planning.org regarding hazard mitigation planning. Versions of the 2014 plan were made available for download or viewing. The 2019 Mackinac County Hazard Mitigation Plan was also made available for download or viewing as chapters were developed. Public meetings were held over several

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http://www.eup-planning.org/

months to gather input, review plan chapter drafts and to develop goals and strategies. Meeting dates were announced on the web-site and via published notices in the newspaper.

Towards the end of the planning process, a notice that the draft Plan was on-line and available for review was sent to all units of government and municipalities within the County. The Plan was also made available to the public with a hard-copy left at the Mackinac County Courthouse and St. Ignace Public Library in the City of St. Ignace, Clark Township in Cedarville and Portage Township offices in Curtis. The notice was also sent to Central U.P. Planning and Development in Escanaba, Michigan and Northeast Council of Governments in Gaylord, Michigan, Chippewa County and Luce County as neighboring communities for their review. A public hearing was held November 12, 2019 to review the draft Plan and receive comments. All comments received were recorded. (See Appendix C – Meeting Summary and Public Participation.)

1.6.4 Coordination & Review of Plans, Studies, and Resources

During the planning process, contacts were made with regional, state, and federal agencies and organizations to determine the programs, projects or data that could assist or support the County’s mitigation efforts.

Existing plans and programs were reviewed during the planning. Keep in mind that this

Plan does not replace other county or municipal planning efforts, such as comprehensive plans, watershed management plans, or local emergency management plans, but is intended to complement those efforts.

1.6.5 Risk Assessment

The Committee undertook step 2 of the planning process from January, 2019 through March, 2019. Throughout the planning process, additional data was collected and incorporated into the risk assessment. The natural hazards that could potentially impact Mackinac County were reviewed by the Mitigation Committee at the April, 2019 meeting. The hazard profiles, including the vulnerability assessment and hazard rankings were presented to the Mitigation Committee at the July, 2019 meeting. The hazard data and the Committee’s findings and conclusions are covered in Chapter 3 of this Plan. Chapter 3 examines the hazards, including a hazard assessment – what causes the hazard and the likelihood of occurrence, and a vulnerability assessment –the impact of the hazard on life, health, and property.

1.6.6 Goals

Mitigation planning goals were reviewed and confirmed by the Mitigation Committee during the April, 2019 meeting. No changes were made as all goals were found to be in alignment with the County’s overall planning goals and needs to reduce the impacts of hazards. These are found in Chapter 4 of this Plan.

1.6.7 Mitigation Strategies

A community questionnaire was distributed to all jurisdictions to gather information. The community questionnaire can be found in Appendix D. The Committee reviewed and

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assessed the status of the strategies developed in the 2014 Natural Hazards Plan. A wide-range of hazard mitigation alternatives were considered. The Committee examined current mitigation efforts and then considered a variety of measures that could affect the impact of the hazards. The mitigation strategies have been organized under six categories: preventive measures, property protection, structural alternatives, resource protection, emergency management and public information. All mitigation measures were reviewed in relationship to the developed mitigation goals presented in Chapter 4. During the 2019 plan update process, each action was reviewed to determine the status. A status for each jurisdiction was provided. In addition, each jurisdiction and township provided a status on action to reflect local risk and needs. Mitigation Committee members were encouraged to provide new jurisdiction-specific actions during the 2019 update of this Plan. The Action Plan is presented in Chapter 4.

It should be noted that this Plan serves only to recommend mitigation measures. Implementation of these recommendations depends on adoption of this Plan by the Mackinac County Board and the City Council or Board of Trustees of each participating municipality and township. It also depends on the cooperation and support of the offices designated as responsible for each action item.

1.6.8 Action Plan

After the review of mitigation alternatives and mitigation recommendations in Chapter 4, the Mitigation Committee drafted an “Action Plan” that specifies recommended efforts and projects. The Action Plan describes who is responsible for implementing the mitigation measure, when the measures are to be done, and an estimate of cost and potential funding sources. The Action Plan was developed with the consideration of the goals and guidelines and a detailed listing with priority scoring can be found in Appendix E.

1.7 Chapter Development and Plan Review

EUPRP&DC, together with the staff of the Mackinac County Office of Emergency Services, worked on the review and update of 2014 Plan chapters over the course of the planning period for presentation at the Mitigation Committee at the quarterly meetings. The Mitigation Committee participated in the review and development of goals, strategies and actions. The full draft was made available between September/October to the public. Comments from the public, communities and the Mitigation Committee were collected through this time.

1.8 Public Meeting

A public meeting was held in November 12, 2019 to inform the public and interested stakeholders of the update of this Plan and to collect any comments.

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