Category Archives: Resilience

Addressing Hazards in Sarasota County

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A bit more than a month ago, I introduced this blog audience to Planning to Turn the Tide, the film project being undertaken by the APA Hazard Mitigation and Disaster Recovery Planning Division. I noted that we would be rolling out a series of updates as we completed work on new trips around the country, but the first was in Southwest Florida in late June of this year. A week later, we shared the first blog video discussing our progress, focusing on a series of interviews with planners and others at the Tampa Bay Regional Planning Commission. Today, I am sharing the second blog video, which discusses our subsequent work in Sarasota County.

Phillippi Creek in southern Sarasota County

Click here to watch the summary video about the interviews we conducted in Sarasota County.

Those interviews included:

SW Florida, USGS map. Sarasota is midway along the central coast in this section. 

One key point throughout the discussions was that Hurricane Ian at one point had been projected to move through Sarasota County before weather patterns in the Gulf of Mexico pushed it eastward into Lee County and Fort Myers instead. That near-miss still allows Sarasota County officials, like those further north in Tampa Bay, to make the point that preparation for a direct hit in a future storm is the entire region’s best bet.

Except for one unrelated post on July 4, it has been a while until now. David Taylor and I left Chicago on a road trip on July 6 to film in Colorado and Iowa, returning on July 18. The delay since then in putting this series back on track arose from both a short-term illness and a long to-do list of other tasks once I was back home, but here we are. We have much more to share now about Florida, Colorado, and Iowa to keep readers aware of our progress, so please keep tuning in every few days. We’ll be working to keep you updated.

If you wish to support the project, please use the QR code below for an online donation.

Jim Schwab

Tampa Bay and the Quest for Resilience

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In my last blog post, I discussed the origins of a current active film effort, Planning to Turn the Tide, which I have been leading on behalf of the APA Hazard Mitigation and Disaster Recovery Planning Division. This post, which includes the first of a series of blog videos recorded during our travels, discusses what we learned during our meetings and interviews around Tampa Bay, especially during an afternoon at the Tampa Bay Regional Planning Council (TBRPC) in Pinellas Park, Florida, just north of St. Petersburg.

Click here to watch the summary video about the interviews at Tampa Bay Regional Planning Council.

One of our interviews featured Jerry Stickney, Director of the Sunshine Line, a Hillsborough County agency that provides transportation for disabled and disadvantaged people, including special services during natural disasters. That last point provided the bulk of our discussion because evacuating and sheltering these people during hurricanes, major storms, and other disasters is a major responsibility, but one that ensures some degree of social equity in the face of life-threatening circumstances. Hurricane Ian could easily have become the major hurricane that finally invaded the Tampa Bay region but instead turned east further south, striking the Fort Myers area.

Cara Serra, resiliency planner for TBRPC, discussed her role in facilitating the work of the Regional Resiliency Coalition, which consists of several working groups examining regional issues concerning shoreline management, infrastructure, stormwater management, and resilient building design and land use, among other concerns. They are currently developing a Regional Resiliency Action Plan.

In the quest for regional resilience, learning lessons from disasters elsewhere plays a major role, one that has not been neglected. Sarah Vitale, planning director for TBRPC, led the development of a new iteration of Project Phoenix, originally created in 2009, to help business leaders and others in the Tampa Bay region understand what the impact of a Category 4 or 5 hurricane might be if it took aim directly at Tampa Bay, something that last happened more than a century ago, when the population was barely one-tenth

Damage from Hurricane Michael, Bay County, FL. Photo by David Taylor

of what it is now. Her training workshop includes video clips of both a simulation of such a storm and real-life stories from Mexico Beach of economic recovery from Hurricane Michael, which struck the Florida Panhandle in October 2018.

Finally, we also spoke with Sean Sullivan, the executive director of TBRPC, whose engaging New England accent kept us captivated as he outlined his vision for a six-county region that is aware of its risks and prepared to handle the impacts of climate change. It is clear that he has a committed staff that is helping to implement that vision and develop the tools for effective change in that direction.

As promised in the video link above, here are links to the film trailer and the donations page to support Planning to Turn the Tide, the documentary film for which all this work is being done:

Film Trailer

Donations Page (QR code below)

Supplemental note:

The impacts of climate change are affecting us all, often in unexpected ways. As I write this, my own sinuses are recovering from the onslaught of smoky air, full of particulate matter, spread south by the winds from thousands of acres of Canadian forests being scorched by massive wildfires. Winds from such fires in Quebec swept through much of the Northeast two weeks ago, including New York City. Yesterday, it was the Midwest’s turn to suffer, and Chicago was one huge grey fog that burned the eyes and made even healthy people catch their breath. The Chicago Tribune reported that we had the worst air quality of 95 major cities worldwide.

If we needed a vivid illustration that climate change and its impacts know no borders, this is certainly it. That is one more reason we at HMDR find urgency in our mission to develop this film and discuss how better planning at local, regional, national, and even international levels can help us turn the rising tide of losses from natural disasters.

Jim Schwab

Envisioning a More Resilient Future

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One reason I have long loved being an urban planner is that, ultimately, planning is about imagining a better future. Or should be, anyway. Although I was in my early thirties before I returned to school for a pair of graduate degrees in Urban and Regional Planning and Journalism (a very unusual combination, I soon learned), I was intrigued with the creative process as early as high school. At the time, I applied it mostly to writing, but I learned in college that creativity was valuable for just about any endeavor. Much later, I was enthralled when I read University of Chicago psychology professor Mihaly Csikszentmihalyi’s path-breaking 1990 book, Flow, a study of the creative process. By then, I was already in the throes of writing my own books and learning where my planning credentials could take me.

While most planners never write or publish books, we all are quite accustomed to producing plans, reports, and other documents for consumption by the public, public officials, and other decision makers. We learn how to present these materials and visualizations in public at meetings and hearings. Visual depictions, for example, of what a neighborhood not only is, but could become, are standard fare. Many of us learn to work with various kinds of visualization and design software that create renderings of future versions of boulevards and parks and other public spaces. What architects do for individual buildings, we try to do for entire neighborhoods and cities. In the process, we try to feed and amplify the public imagination for what could be, hoping to find options for improvement that will appeal to a public that may be looking for alternatives to an unsatisfactory or uninspiring status quo. Whole books and software programs, such as CommunityViz, have been devoted to sharing strategies with planners for accomplishing these visionary goals.

The written word and visualizations are two ways, often combined, for helping people see new possibilities or change the way they see the familiar. I have used them for decades, in evolving ways, to help people better understand my own planning specializations, hazard mitigation and disaster recovery. When a natural disaster such as a hurricane or earthquake has shaken a community’s assumptions about its own future, it can be time to think about rebuilding in a way that makes that community more resilient in the face of future events. I helped advance the idea of pre-disaster planning for post-disaster recovery, that is, thinking before a disaster even happens about what would expedite the recovery process and allow the community to emerge stronger and more prosperous than before. This has become known as finding the “silver lining” in the dark cloud of disaster recovery, building hope during a process that can take years or even decades in the most drastic situations.

Left to right, crew members Jim Schwab, David Taylor, and Kim Taylor Galway toast the film project at Royal Peacock, Sarasota, FL, June 18, 2023

Even when I left the American Planning Association (APA) at the end of May 2017, I largely envisioned a continuation of my hybrid journalistic and planning career in the form of books and teaching, for the most part, augmented by various consulting jobs. It was only after conversations with high school classmate David Taylor at the 50th reunion of our Brecksville, Ohio, Class of 1968 in June 2018 that another idea took shape. David, a Purple Heart Vietnam Veteran, had taken a very different path in life after recovering from war wounds, by becoming first a photographer, and later a videographer. After retiring from a marketing position with the U.S. Postal Service, he opened his own studio and has done film and photography work for veterans and environmental groups, as well as traditional assignments like weddings.

Dave had followed my career for decades, starting with the publication of my first book, Raising Less Corn and More Hell (University of Illinois Press), in 1988. As I grew into my role as a leader in hazards planning, he became fascinated with what planners do in that realm, regarding them as “unsung heroes” of the recovery process. Further conversations led to a visit to his home in Sarasota, Florida, in February 2019, which included a presentation at a Florida Atlantic University symposium in West Palm Beach, and eventually that fall into the idea of producing a video documentary about the role of planning in helping communities address threats from natural disasters and climate change. As chair-elect at the time of the APA Hazard Mitigation and Disaster Recovery Planning Division (HMDR), I took that idea to the executive committee, and they chose to sponsor the project.

Devastation from Hurricane Michael, October 2018. Photo by David Taylor

Thus began, for me, a new way of thinking about how to engage the public on these issues. I had no experience with film as a vehicle for this process, except as a viewer, but the idea captured my imagination. What can one do with film that would be different from the written word? As the script writer, how would I think about the narrative differently? Moving out of my comfort zone forced me to think even more creatively than usual, but I welcomed the experience because I sensed that it might give us a new way to capture people’s emotions and imagination around an idea whose time was overdue. The United States, and the world, were suffering ever more massive losses from natural disasters, in part as a result of climate change, and needed new ways to approach the problem. Maybe the kinetic visual impact of a film could help affect that, if crafted with the right forward-looking perspectives in mind.

It would not be easy, and I readily understood that. Moreover, the first question was how to pay for the project. Movies are inherently more expensive to produce than books, and involve at least as much work in most ways. But if we could pull this off . . . .

Fortunately, incoming chair-elect Stacy Wright was able to arrange a $5,000 donation from Atkins, a consulting firm, to start the ball rolling in the fall of 2019. I became chair of HMDR on January 1, 2020, but the COVID pandemic intervened within weeks and by March 2020, we had to shut the project down and wait for the best. It was the fall of 2021 before we were again able to move forward. We created a Video Project Advisory Committee to provide guidance on the project. It consists of leading voices in the hazards planning subfield. We also began to assemble teams of regional volunteers who could assist us with logistics and recommend leading planners for interviews and advice.

We chose to name the film Planning to Turn the Tide because of the metaphorical implications of seeking to reverse the growing tide of losses of life and property from natural and other disasters. Well aware of the impacts and trends of climate change, we know that the number and costs of America’s billion-dollar disasters has risen rapidly in recent decades. We also know that planning can make a difference.

Outdoor interview with Julie Dennis, owner of OVID Solutions (also a member of Video Project Advisory Committee) in Blountstown, Florida, July 2022. Holding camera is Kim Taylor Galway; to her left is videographer David Taylor.

In the meantime, we raised additional donations from other consulting firms* and won two small grants from the APA Divisions Council to help us get started. We announced our project in May 2022 at the APA National Planning Conference in San Diego and recorded interviews with leading hazards professionals at the Association of State Floodplain Managers annual conference two weeks later in Orlando. By mid-July, we had recorded 14 more interviews in the Florida Panhandle, mostly in Panama City, following the area’s recovery four years after Hurricane Michael struck as the first Category 5 storm to reach the U.S. mainland since Hurricane Andrew in 1992. In that visit, we had extensive support from both City Hall in Panama City and the Bay County Chamber of Commerce, which provided its board room for a recording studio for an entire day.

Local entrepreneur Allan Branch explains his restoration efforts at History Class Brewing in downtown Panama City, July 2022

By then, our main problem was that we needed an easy way for people interested in supporting the project to make donations. Fundraising can be hard work, but there is little reason these days to make it harder than it needs to be. APA worked with us over subsequent months to create a dedicated donations page where people could donate online. Because we were the first division in APA’s history to attempt a project like this, we were also the first to need such a mechanism, but by late March of this year, it was ready. The donations page, which you can also reach with the QR code below, channels donations directly to HMDR and tracks the donor information for us, so that we can recognize our supporters appropriately (unless they choose to be anonymous). You can help keep this project moving ahead by donating now, and I sincerely hope you choose to do so. You will be helping us sell the concept of resilient communities to America.

If you need more information on the project itself, visit our project information page. I will be adding new posts regularly as we continue our work, including short blog videos summarizing what we are doing along the way. Please stay in touch.

Jim Schwab

*Early Supporters:

Atkins

APA Divisions Council

Michael Baker International

JEO Consulting

Association of State Floodplain Managers (in-kind donation)

Jim Schwab Consulting LLC

OVID Solutions

Richard Roths, AICP

Clarion Associates

Punchard Consulting

 

Catch Up and Slow Down

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I was lying half awake in bed at 4 a.m., unable to return completely to sleep after using the bathroom. My mind kept rolling over various competing obligations and necessities, and the thought hit me:

“You must catch up while slowing down.”

Frankly, that made about as much sense to me in the moment as it probably does to you upon reading it. One’s subconscious mind can shed strange light sometimes. The whole idea is as paradoxical as it is imperative. And yet, I mention it because I strongly suspect that many people can relate to it at some level.

We get caught in situations. Mine is partial explanation of why it has been weeks since I last posted on this blog, but that is a minor measure of the overall impact of a combined events and circumstances. As a professional urban planner, I can state flatly that life does not always follow our plans. It springs surprises and throws nasty curveballs.

Work piles up, even if much of it, in my case at the moment, is pro bono or volunteer work. The thought that I am sharing occurred last weekend, and I wrote the first four paragraphs above that morning. I got sidetracked until now, but there’s no better time to finish a blog post than now–I guess.

Let’s go back almost two months. On April Fool’s Day, aka April 1, I flew with my wife (Jean) and a teenage grandson (Alex) to Philadelphia to attend the American Planning Association’s National Planning Conference. This was important to me on several levels, including my role as immediate past chair of the APA Hazard Mitigation and Disaster Recovery Planning Division, which keeps me on the Executive Committee until the end of this year. Even then, I will still be involved, primarily in charge of a documentary film project, but I will save that topic for my next blog post. You can see the work piling up already. Being there allowed me to network with numerous people about numerous issues and projects and attend our division reception, where we announced a fundraising campaign to support the film project. Over breakfast, it gave one colleague from APA’s International Division an opportunity to recruit me for its Ukraine Rebuilding Action Group. But it was also a chance, during spring break for the Chicago Public Schools, to tour parts of a historic city with Alex and Jean.

A much earlier request to speak at a conference in Georgia set me up to fly back to Chicago on April 4 to stay overnight and fly the very next day to Atlanta. The occasion was the Larry Larson Speaker Series of the ASFPM Foundation at Lake Lanier, attached to the annual conference of the Georgia Association of Floodplain Management. Our distinguished panel was addressing issues of disaster resilience from federal, state, nonprofit, and local planning perspectives.

Little did I know my own resilience was to be tested. Wicked weather sweeping through the Midwest and South that week created havoc. By the time I arrived at O’Hare International Airport, having neglected to check for cell phone text messages, I learned that my flight to Atlanta was canceled and no others were available that day. I needed to be at Lake Lanier by that evening, so I conferred with the event organizers. I had to cancel my flight and hotel room and ended up speaking the next morning by video connection, missing out on personal interactions but delivering my comments anyway. Perhaps my own most notable remark was that I no longer wanted to hear any local official say after a natural disaster that “no one could have foreseen” the event. If the event happened, I said, it was always within the realm of possibility. “What you’re telling me,” I said, “is that you may not have spent much time thinking about it beforehand.” Terri L. Turner, a long-time colleague and recently retired development services administrator for the city of Augusta, Georgia, told me later that there was a ripple of laughter in the audience after I said that. Floodplain managers too often know the truth of such assertions.

Within two weeks, I discovered that my personal resilience was to be challenged in more significant ways. By mid-April, I experienced a sudden problem on the bottom of my left foot that appeared to be some sort of lesion or blister. Not sure, the best move seemed to be a consultation with my primary care physician to see what he thought. That happened on April 19, but he was also uncertain and referred me to a podiatrist. However, the very next morning, I reported to Northwestern Memorial Hospital for a previously scheduled prostate biopsy, which produced its own complications over the weekend. I might have just waited those out restfully if I had not been scheduled as co-instructor for a week-long online, all-day FEMA class that week, which was largely an exhausting experience. In mid-week, I left right after class adjourned for a follow-up appointment with the urologist to learn the results of the biopsy, which were reassuring but will involve some further measures this summer.

I finally managed to see the podiatrist the following Monday. He determined a need to biopsy the growth, a decidedly painful and messy experience even with a local anesthetic. I went home with a bandaged foot that I needed to protect for several days until it healed. A week later, however, I learned that the growth was benign; surgery would still be beneficial though not urgent.

Somewhere, in between all this, my printer died. I bought a new one from Best Buy but asked that the Geek Squad do me the favor of installing it. After all, I bought it the day of the foot biopsy. Our aging electric mower also died, and I brought our 19-year-old college student grandson to Home Depot to help buy a new one. I let him assemble it and mow the yard. I’m fine with mowing now, but for a few days, it was decidedly not a good idea.

By now, the second week of May had arrived, and a number of commitments beyond the FEMA class were amassing a backlog of work for which I needed a rapid rise in stamina, which I have mostly managed to generate. Nonetheless, I wish I had more energy and more hours in the day. That does not even speak to family obligations as summer arrives and school ends, and I dream of a vacation while arranging to see doctors in August. I’ll figure it all out, but as I said, life throws curveballs. The value of being 73 is that one has presumably learned something about how to handle matters more efficiently and wisely. I am applying that wisdom to regain control over those pending tasks and establish priorities. I am learning how to catch up and slow down at the same time.

My next post, coming very soon, will share the biggest project currently on my plate. I hope you will find it as fascinating and exciting as I do. Resilience matters.

Jim Schwab

 

P.S.: While editing this piece for publication, I learned that a Sunday feature article in the Chicago Tribune, in which I was quoted, has appeared online here. The article discusses the impact of climate change on urban heat and social disparities in the city. In addition, the two links below provide methodology for the article and searchable maps:

https://www.chicagotribune.com/investigations/ct-viz-chicago-heat-disparities-climate-change-20230526-mzsazq6xa5b6rejv3rtvfefwoi-htmlstory.html

https://www.chicagotribune.com/investigations/ct-how-we-reported-on-heat-disparities-in-chicago-20230525-hsdhhgzgwrc7tffcre6ftanphi-story.html

Thanks to reporter Sara Macaraeg for alerting me to the article’s release.

New Year’s Thought about Legacy

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I am a tree lover, but not a tree hugger. I think there is a difference, although I do not wish to demean tree huggers in any way. I am simply coming from a different place, viewing matters through a different lens.

I can understand the emotional response that trees elicit from huggers. I appreciate the beauty that nature provides and feel moved upon seeing a forest or even the single American elm that towers over our backyard. I had already assumed that this tree, which we protected when we built our home in 1994 by adjusting the location of the garage and shortening its apron into the alley behind us, was at least a century oldwhen an arborist from Davey Tree, which prunes it periodically, confirmed my guess. At its ripe but healthy old age, it has watched many of us humans move in and out of the neighborhood and seen houses built and torn down. It has survived a dozen serious blizzards and major windstorms, such as the August 2020 derecho that brought 100-mph winds and two tornadoes to the city of Chicago. Having turned 73 just before Christmas, I can anticipate the possibility that the tree may yet outlive me. I hope it does; I would hate to have the responsibility of tearing it out if it dies.

Davey Tree at work on our American elm tree

But a great deal of my admiration for trees is intellectual and analytical. As an urban planner, I have come to appreciate their role in the city. I led a project for the American Planning Association (APA), published in 2009, that examined in depth how planners could prioritize the role of trees in helping us all build prosperous, beautiful, and environmentally healthy communities. As with any serious research project, I learned much from piloting that effort. I gained some in-depth knowledge of the various ways in which trees filter air and water pollution, reduce stormwater runoff and hence flooding, enhance property values, and temper human aggression, among other benefits to human society. We are fools when we think we can live without trees. Their presence helps humanize us.

I will not regurgitate here all the data that are available to confirm these statements. You can start just by downloading Planning the Urban Forest. I am making a point about my own perspective, which is built heavily upon science while honoring my own environmental instincts, which run deep. Half a century ago, I led the first student environmental organization at Cleveland State University. Instincts and intellectual curiosity often work together.

Photo of Pere-Lachaise by Bensliman Hassan. Photo from Shutterstock.

What prompted this reflection was a recent article from the New York Times. It actually concerned the gradual changes that have transformed a Parisian cemetery, Pere-Lachaise, opened in 1804. It houses, if that is the right verb, the remains of numerous artists and authors including Marcel Proust, Frédéric Chopin, and Oscar Wilde, or if you prefer more modern and volatile types, Jim Morrison of The Doors. Once tended like a golf course, it underwent a transformation after a city directive in 2011 encouraged cemeteries to stop using herbicides. In just a decade, nature has reclaimed much of Pere-Lachaise. Trees have grown, the canopy shades the grounds, birds nest in the trees, and the corpses in coffins share the land with the squirrels and foxes. A funny thing happened on the way to this green restoration: The cemetery became significantly more popular with people. Visitors now total more than 3 million per year. Nature and people are learning to live together.

There is a religious element that appeals to me as a Lutheran. Martin Luther himself was a mixed bag in many ways. He did not always know when to pause and think before he wrote, but there are numerous pearls of wisdom that persist nonetheless, aside from his theological disputations.

About 12 years ago, I believe, I was invited to speak at the annual conference of the Mississippi Chapter of APA—not once but twice. The first presentation involved contentious issues of hard-core planning, focused on hazard mitigation. The location, Ocean Springs, sits on the Mississippi Gulf Coast, which had experienced the worst storm surges of Hurricane Katrina in 2005. It was the second presentation that I found more inspirational because it focused on the then recently released APA report on urban forestry. During the audience questions, there was some inquiry about motivation for advancing the subject matter. Instead of offering a scholarly response, I offered my religious affiliation as an excuse for quoting Luther. When asked once what he would do if he knew the world would end tomorrow, he is reputed to have replied simply that he would “plant a tree.” That sort of defiant commitment to hope, and the recognition that trees are a potent symbol of hope, I said, was what motivated me. It is what truly makes us human.

I want to make two things clear as this new year begins and I edge ever closer to an eventual and inevitable demise. First, I have left instructions for my cremation because, in the 21st century and devoid of any superstitions about how our remains are handled, I wish not to occupy any real estate after I die. I do not need to take up space in in a local cemetery. God will decide what to do with my spirit. Second, however, I do want my successors and friends to take time during or after a memorial service to plant a tree.

Please, just plant a tree and say a simple prayer. No more powerful message is needed. Trees will speak for themselves.

Jim Schwab

Going Viral

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Now I know what it feels like, or may have felt like. Kind of. Sort of.

I will never experience, in all likelihood, the very worst the COVID-19 virus can inflict on human beings. I was lucky in many ways. First, the virus just never found me as a target until early October of this year. Second, I am very physically fit for my age, and I don’t suffer from any chronic conditions that often expose people to more severe reactions to the virus. Third, by the time COVID-19 found me, I had the two initial shots of the Pfizer vaccine, and later a Moderna booster. My only failing was not having obtained the more recently released Omicron booster, but there is no question that vaccines made my path far easier than was the case for those who suffered earlier in the pandemic.

I spent most of my COVID time not knowing I had it, though there were indications that aroused my suspicions—just a bit. Late Sunday, October 9, I experienced some mild cold symptoms, but I sometimes have sinus problems that become more persistent as Midwest weather changes in the fall. On Monday, I began to experience more of a cold and struggled through online meetings, two about a video project, one preparing for an upcoming online training workshop. In the evening, I was supposed to volunteer with

It’s a lot easier to get a test now than at the height of the pandemic, when tests were as scarce as the places that provided them. Now you just pull up for an appointment, take the kit through the window, tickle your nostrils with a swab, and hand it all back to the pharmacist.

signature collection to help place our incumbent Chicago alderman, Daniel La Spata, on the municipal ballot next spring, but I called it off because I was not feeling well. By the next morning, I took a nasal swab COVID test at Walgreen’s, but the test came back negative the following day. As a result, I assumed I simply had what I called “the ordinary crud” of a normal cold. Just deal with it for a few days, I thought, and get over it.

I made no real changes to my plans and tried to maintain my normal pace. The previous week, curiously, had included my participation as a consulting expert in two online symposiums, both lasting two and three-quarter hours, on Tuesday and Thursday for a project at Johns Hopkins University addressing pandemic community recovery. I moderated the final panel on Thursday, dealing with the use of metrics, which are essentially statistical targets, for tracking the many variables concerning social equity and public health factors that would guide such recovery. In other words, COVID-19 already had my intellectual attention. I had no reason to suspect It would seize my medical attention as well.

But I was wrong on that count. By that Tuesday, some of the infamous COVID-19 fatigue was settling in, and the cold was tightening its grip. I had planned to attend a program of the Society of Midland Authors at Cliff Dwellers in downtown Chicago that evening. As on Monday night, I never made it. It seemed wiser to stay home. It was becoming a pattern.

Nonetheless, I spent Wednesday morning at a dealership service department. While in the waiting room, I met online with two planned guest speakers for my online University of Iowa class, which meets in the fall semester on Thursday evenings. I was very much looking forward to letting Linda Langston and Kehla West take over the class a week later because, in my opinion, both are impressive members of the natural hazards professional community and could share valuable insights. “Planning for Disaster Mitigation and Recovery” offers graduate planning and public affairs students serious comprehension of the natural-hazard threats facing our communities. Linda is a former county supervisor of Linn County, Iowa, who had helped lead her community through the 2008 floods that overwhelmed Cedar Rapids and into the recovery that followed. She later worked nationally on resilience issues with the National Association of Counties before returning to Cedar Rapids as a consultant. Kehla works with Region 5 of the Federal Emergency Management Agency in Chicago. Although she was doing me a favor by sharing her federal government experience, she regarded it as a great honor to be asked to speak to a class in which she was once a student. I was enthusiastic about sharing my virtual stage with them for two hours. The meeting was a breeze.

All right, this is a simulation of what I may have looked like, but it’s probably close. I found myself waking up in a seated position on the couch more than two hours after falling asleep early in the afternoon.

But most days that week, with increasing frequency, the afternoon was not. I no longer even remember which day was which, but I know that on several occasions, I would hit a wall of fatigue by late morning or early afternoon, and work would grind to a halt. One day, this happened around 1 p.m., and to regain some energy, I went downstairs from my home office to sit on the living room couch. I simply disappeared into deep slumber, with no recollection of anything. Sometime well after 3 p.m., I woke up, looked at the clock, and wondered where my day had gone. For someone very conscious of pending deadlines and obligations, it was deeply frustrating. At the end of the day, I like to know what I have accomplished. I did not want to find that I had lost a major chunk of my day to exhaustion. It became hard to believe that a mere cold had done this, but I kept thinking about that negative test. It was not COVID. I was just worn out fighting a cold. But day after day, I watched in growing alarm as the number of tasks falling behind schedule kept growing. The will power and drive that sufficed in normal circumstances to overcome such deficits never materialized, and the gap widened instead. The spirit was willing, but the flesh fell asleep, day after day.

That Thursday evening, I taught my class as usual. But it was not so usual. It became patently obvious that I was struggling with my voice, with sinus difficulties, with watery eyes, with fatigue, but I plugged away for two hours. By Saturday, in a phone conversation with someone about a potential film grant proposal, I struggled again in the conversation because my voice was weak, but I pushed ahead because the call was important, and the proposal deadline was at the end of the month, just two weeks away.

And so it went. If a meeting was on the telephone or online, I could make it work even if I was exhausted after it was over. If it was in person, I would cancel. Fortunately, most meetings, including a debrief with Johns Hopkins about the symposium two weeks earlier, a HUD guidebook review panel, and a Midland Authors board meeting, were online, usually via Zoom. I had contacted my doctor over the weekend of October 15-16 through a patient portal, and he asked me to come in, which I did by Wednesday, October 19. He made some suggestions but accepted the negative COVID test result. Following his advice, I began using a Neti pot to control the sinus congestion—and it works, by the way. In combination with Flonase (after the Neti pot), it has been effective. The fatigue, however, took its own good time to fade away.

The next day, Thursday, I had class in the evening, the one at which Linda and Kehla would speak in tag-team fashion about local and federal perspectives on planning for disaster recovery. That afternoon, Jean tested positive, much to her surprise. In our pre-class banter on Zoom, I mentioned that to Linda, who repeated it to Kehla when she logged on: “Jim’s wife tested positive for COVID.” Kehla immediately expressed her regrets. They taught the class, I offered occasional commentary, and for the most part, I got to rest my voice and conserve my energy.

But I had also decided at that point that getting another test the next morning was imperative. By mid-day Saturday, a Walgreen’s e-mail informed me that I had tested positive. I discussed it with an emergency room doctor, and later my primary physician, who said the symptoms we discussed just a few days before sounded a lot like COVID to him at the time. The ER doctor stated that, based on our discussion of what led me to get tested again, I had probably had COVID all along and may unwittingly have infected Jean. The verdict of these two men made sense to me, but of course, it was now after the fact. I was actually near the end of my COVID experience before I ever knew for certain that I had it.

Alex, to right of candle, after baptism service, with me at far right, Pastor Nancy Goede, Pastor Matt Stuhlmuller, Alex, sponsor Kornelius, and members of my family, including Jean, far left. I later wondered about any unintended exposure I may have cause through unawareness that I even had COVID at that point.

If there was one situation that brought some regret–it seems not to have produced any adverse consequences that I am aware of–it was that, not believing I had COVID, I joined others at our church for our grandson Alex’s baptism on October 16. Mass spreader events were at one time rather scary propositions. But there I was, unaware, part of a ritual and celebration that was a happy event but could have infected others. The following Sunday, I stayed home because by then, I knew I had contracted COVID.

Although I am certain that skeptics of the vaccines (and I know some) would say this was just one man’s opinion, the ER doctor stated that the vaccines had surely helped make my case milder (and Jean’s was milder still), and that the vast majority of those now being hospitalized or dying from the virus are unvaccinated. The statistics I have seen on the subject seem strongly to suggest as much. But people love to argue from anecdotes, which are easier to understand than statistical data, and the resistance will surely continue. The COVID-19 pandemic seems closer to having run its course after nearly three years. All pandemics eventually lose steam.

COVID is no longer half as scary as the ghost lady and her companion on Halloween. Okay, just kidding. But that guy is freaky.

By the following week, with minor help from a cough suppressant the ER doctor prescribed, I was able to regain energy and focus on the tasks that I had neglected for almost two weeks. They were too important to me to do otherwise. One was completing a grant proposal for a film project I am leading under the auspices of the Hazard Mitigation and Disaster Recovery Planning Division of the American Planning Association. The deadline was October 31, and with significant money at stake, I was not about to blow it. We had been laying the groundwork for weeks, but I needed to write some powerful explanations of our project and submit all the necessary documentation, which I did by that morning. I was able to walk our grandson through the neighborhood for Halloween and pass out candy afterwards, while triggering the spooky voice of our alabaster “ghost lady” without being noticed. She impressed only the very young, drawing only amused yawns from tweens and teenagers.

But that was just the beginning of a list of tasks and projects needing my urgent attention. I had promised to create a case study of Hurricane Michael recovery to present to my students on November 10. I finally completed it just an hour before class. On Saturday, November 12, I hosted with Amanda Torres, formerly the city planner for Rockport, Texas, an all-day training workshop on hazard mitigation and disaster recovery, offered as part of my teaching commitment with the University of Iowa School of Planning and Public Affairs. I had two documents I had promised to review, for which I sought and received additional time.

During the illness, I stopped my exercise routine. I currently visit the gym twice weekly with a rotating routine of exercises. After the illness had run its course, I still missed the workouts in favor of catching up on work. Before Christmas, I will turn 73. I find the exercise vital to good health at this stage of life, and I became anxious about the six-week gap that developed before I finally resumed the workouts on November 16. I have taken to them with relish. I simply feel better because of it, and I can finally spare the time again. Two days after Thanksgiving, I ran into a former trainer I worked with at X Sport, Michael Caldwell, who told me about his new work with companies on employee fitness and ergonomics, noting the serious toll on many people of failing to pay attention to such issues. I wished him well in his new enterprise. He seemed pleased that I was returning to form, just as he had always respected my resilience in the past after some injuries and surgeries.

But I also know that I am very fortunate. I find absolutely no evidence that I have developed any long-term COVID symptoms. I never fell victim to COVID-19 in the early days of the pandemic despite a short-term hospital stay in May 2020 on the only floor with non-COVID patients. I have even discovered the accidental grace of hundreds of presumed strangers who, in successive waves in October and November, registered as new subscribers to this blog at a time when I was seldom posting anything. I wanted to change that but just could not get it done. Their attention to my blog despite several weeks with no new posts encourages me to get back into the ring. I must have offered something in earlier posts that still attracts readers, and I hope to keep it that way for a long time. I hope this humble story adds to the blog’s overall value. I shall certainly try my best.

Jim Schwab

Rising from the Ashes

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Wall art at the Peshtigo Fire Museum

Back on August 11, during a family vacation that involved circumnavigating the shores of Lake Michigan, my wife and I and two grandsons visited the small town of Peshtigo, Wisconsin, and spent an afternoon at the Peshtigo Fire Museum. It is housed in a former church that the museum acquired in 1963. While there, I decided to purchase some items from the small gift shop near the front; the museum sells a handful of books and mementoes. One was a reprint of a special edition of a local newspaper that commemorated the 1871 fire that destroyed the town. The other was a small book by the Rev. Peter Pernin, a Roman Catholic priest who wrote about surviving the fire.

I may have acquired another item or two, but if I did, I have no proof. Planning to write this blog post on the 150th anniversary of the Peshtigo wildfire and the Great Chicago Fire, which both occurred on October 8, 1871, I wanted to read the items and discuss them here. Hours of searching my home office and the rest of our home turned up nothing. This is excessively unusual because I tend to be meticulous about keeping track of such acquisitions, but the anniversary approached and a maddening sense of futility took hold.

In frustration, I wrote to the museum through its online contact form and asked whether they could send me a new copy, and I have sent a $100 donation for their trouble. When I finally get a chance to read the material, sometime in coming weeks, I will supplement this post with a discussion of the historical materials. But before going on with the story, I want to commend the museum for a quick response from Wendy Kahl, who promised to send me replacements and expressed appreciation for the donation. I don’t remember the price of the items, paid in cash, but it was a fraction of my offering. The point, however, is that this small museum, in a small town in a rural area, is staffed by volunteers and operated on a shoestring by the Peshtigo Historical Society. They are, however, helping to preserve a vital piece of American history. Although I don’t often appeal for donations on this website, I will now. Those willing to help this humble enterprise can send donations to the Society at 400 Oconto Avenue, Peshtigo, Wisconsin 54157.

Most of us can gain only the tiniest inkling of the scale of loss suffered by a town like Peshtigo, which was a thriving lumber company town along the Peshtigo River near the shores of Green Bay, an arm of Lake Michigan, after the Civil War when catastrophe struck. I was about to write “when disaster struck,” but I quickly realized that the word “disaster” does not begin to do justice to the deadliest wildfire in American history. The extent of the devastation was so severe that no one really knows how many people died, but 1,500 or more seems to have become a reasonable estimate. The best narrative of the event I have read is Firestorm at Peshtigo by Denise Gess and William Lutz, published in 2002, but the museum website lists a few other resources.

Those resources in total can do far more justice to the story than I can hope to do in a blog post. However, the point that I can make here is one that, curiously, seldom occurs, although it is clear enough in the book by Gess and Lutz: the organic connection between the two fires in Peshtigo and Chicago. Separated by more than 250 miles, it is not that their fires shared a proximate cause. That would clearly be impossible. Recently, syndicated Chicago Tribune columnist Clarence Page mused about theories propagated by Chicago-area writer Mel Waskin that meteors delivered the ignition while recognizing how far-fetched that sounds and confessing to his own belief in pure coincidence.

But one can rely on science while saying that the two fires on the same day were more than pure coincidence. The reality is that a hot, dry summer plagued the entire upper Midwest from Chicago to Wisconsin and the Upper Peninsula of Michigan and Minnesota. Such conditions are the natural breeding grounds for wildfire, as fire experts in California and Colorado have long known. During the long summer of 1871, note Gess and Lutz, various fires peppered the landscape from Lake Michigan to the Dakota Territory. Storms in Texas drove winds northeast to Michigan and Wisconsin. But, as we now understand, the conditions were ripe throughout the entire region for a much larger conflagration.

Photo of a burning building at the Peshtigo Fire Museum

And it came, a raging inferno that swept through more than 2,400 square miles of northern Wisconsin, literally destroying the small town of Peshtigo. One reason the Peshtigo Fire Museum struggles in some ways to tell the story is that so few of the town’s structures and valuables were left in any recognizable condition when the fire subsided: a pile of metal spoons forever fused together by heat, a badly charred Bible. Small wonder that much of the museum consists of other artifacts from the rebuilt town that are not really part of the fire story. It’s hard to populate a museum with what no longer exists and could never have been saved. But they can tell the story with what they know and with the paintings in which people reimagined the horrors they had faced.

There is another point, however, that is often ignored: Chicago and Peshtigo, economically and environmentally, were in those days joined at the hip. Peshtigo was essentially a company town, largely under the control of Chicago magnate William Butler Ogden, who owned a steam boat company, built the first railroad in Chicago, and served as the city’s first mayor. Ogden Avenue and a few other things in Chicago bear his name to this day. He was a legendary presence during the city’s first half-century.

In 1856, he also bought a sawmill in Peshtigo. The lumber industry was in high dudgeon in the upper Midwest in those days, shipping logs down rivers to Lake Michigan and down the lake to mills and yards in Chicago, where the new railroads could ship it to markets in the East and elsewhere. Chicago was a boom town with a dense downtown of largely wooden buildings, but the same milieu of sawdust and bone-dry lumber created the same conditions for a wildfire that existed in the northeastern corner of Wisconsin, just miles from the Michigan border. It is not clear that anyone knows definitively what actual sparks triggered the fires in each community, but the common ingredients of fuel, heat, and oxygen that power wildfires were clearly readily available in both cities at the same time, largely driven by commerce.

It is hard to imagine today how dangerous it all was. Even without a fire, logging was an inherently dangerous occupation, with many men maimed or felled by attempts to control rolling logs as they were corralled downriver to lake ports, or by trees that fell as they were being hewn (known ominously as “widow makers”) in a time that knew neither worker’s compensation funds nor work safety regulations. Expecting the owners of logging mills and lumber yards to understand the dangers of wildfire any more than they cared about reducing workplace injuries would have been unrealistic at the time, although a dawning awareness of the need for such regulation led to Wisconsin leading the progressive era with state-level reforms by the turn of the 20th century.

Aftermath of the fire, corner of Dearborn and Monroe Streets, 1871. Reproduced from Wikipedia.

But for the many people who fled or succumbed to the fire on the fateful day of October 8, 1871, that was all in the distant future. The immediate reality is that many were burned alive, some died after jumping into the Peshtigo River to escape the flames, and thousands lost homes and all they owned in a matter of hours as the fire spread. Meanwhile, the same happened in Chicago, where 17,450 structures fell to flames that swept through a three-mile area in just three hours, including the supposedly fire-proof new headquarters of the Chicago Tribune. More than 100,000 people, one third of the city’s population at the time, were displaced from their homes. For weeks, the city lay in ruins as community leaders sought ways to finance and rebuild a city from the ashes. Chicago, of course, even then had far better access to capital and media attention than lowly Peshtigo, which remains a town with a population of just 3,500, some fifty miles north of Green Bay, the nearest city of even modest size.

Chicago’s media dominance, and its ability to retell its own story, continues. The Chicago Tribune, for instance, produced a commemorative special insert magazine, “The Great Rebuilding,” with a great deal of useful documentation. The Chicago History Museum opened its special exhibit on the fire today. But at long last, Chicago media outlets are also paying attention to their sister in tragedy with articles like the one in the Tribune describing at length “the fire you’ve never heard of.”

Chicago also had the resilience, although the term was not in common use, to conceive of rebuilding in a way that would avert future disaster. If you notice a lot of masonry construction on your next visit, you are seeing the legacy of the Great Chicago Fire, which altered local thinking about building codes and fire resistance. Similar shifts of thinking about structural fire safety, of course, occurred throughout urban America over the next half-century because structural fire was strikingly common at the time, and insurance companies and firefighters alike realized something had to change. But that may be a longer story for a future blog post.

The fires also fed our nascent understanding of the dynamics of wildfires and how they are influenced by weather, in the short term, and climate over longer periods. As Gess and Lutz note, the Peshtigo fire gave us the word “firestorm” as the result of a growing scientific recognition that the intense heat of a large wildfire can create its own weather within the conflagration, including tornado-like winds up to 90 miles per hour, caused by the differential between the heat of the fire and the cooler temperatures of the surrounding atmosphere. Tornadoes, of course, are born of such meteorological conflicts, an endemic condition of the vast interior of North America where colder northwestern winds meet in mortal combat with warmer winds from the Gulf of Mexico throughout the summer and into autumn. In commemorating the two fires, we can also recognize that they came at the dawn of an entire science of wildfires that is working against time today to catch up with the deleterious impacts of climate change.

History matters. And I hope that I have sparked more than a smidgeon of interest among readers in what I consider a deeply intriguing and intellectually challenging topic.

Jim Schwab

Private Costs of Disaster Prevention

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Champlain Towers collapse. photo from Wikipedia

The recent collapse of the Champlain Towers in Surfside, Florida, has cast a spotlight on numerous issues concerning building maintenance, private and public decision-making processes, potential (but highly uncertain) corrosive impacts of sea level rise, and even the continuing exposure of rescue workers to COVID-19, in addition to environmental and occupational hazards. That is all in addition to the governance questions surrounding condominium boards, given the news of past debates about deferred but expensive maintenance once consultants revealed structural deterioration in the 12-story complex.

I wish to be clear about my purpose in writing this post. As an urban planner and researcher, I have doggedly sought to focus on known facts and accurate assessments of hazardous situations of any type. Sometimes, the truth is clear enough. In others, it is wise to withhold judgment while raising questions that deserve thoughtful answers. In this instance, there are so many aspects to the story of the condo building collapse that caution is the appropriate approach because new facts seem to emerge daily. One question—why the North Tower did not collapse while the South Tower did—may compel further inquiry on the role of condo boards in driving decisions about investing in maintenance before catastrophe strikes, but further investigation may reveal many nuances to that story as well. Complete answers are not always simple or obvious.

I have no intention of rushing to judgment on the tragedy in Surfside. But I do wish to focus on one issue that I know is endemic to housing development on a nationwide basis: the roles and responsibilities of homeowners associations (HOA) for managing and maintaining property. Condo boards are one specific subset of HOAs, based on the nature of the buildings. But the issues are not limited to such buildings; they can easily affect the management of townhouse developments and gated subdivisions as well.

Five years ago, when the American Planning Association (APA) and the Association of State Floodplain Managers (ASFPM) collaborated to produce a Planning Advisory Service Report, Subdivision Design and Flood Hazard Areas, we confronted one ticklish issue that concerned us greatly, albeit with regard to flood (and some other natural) hazards rather than structural integrity of tall buildings. The underlying issue, however, dealt with the capacity of privately governed homeowner associations to manage, finance, and maintain hazard mitigation infrastructure over time. Of course, one can easily broaden the definition of such infrastructure to include structural integrity repairs in a situation where buildings can potentially collapse, just as it might include the need to maintain the structural integrity of bridges to prevent such tragedies as the collapse of the I-35 bridge over the Mississippi River in the Twin Cities in 2007. There is considerable room for flexibility in defining the issue so long as the focus remains on public safety.

Our concern at the time was the potential for a financially challenged homeowners association or special district to fail to maintain critical infrastructure before a natural disaster leads to catastrophic failure, whether because of flood, landslide, earthquake, or wildfire, among other possibilities. Chad Berginnis, the executive director of ASFPM, alerted us to an article published by two lawyers involved in owner association litigation in California, Tyler Berding and Stephen Weil. They offered several examples of such situations including Bethel Island, which sits in the Sacramento Delta and includes about 2,500 residents whose homes are protected by more than 11 miles of levees that

USGS photo of Sacramento-San Joaquin Delta in California

circle the island, just 12 miles from the Greenville Fault. Throughout the Sacramento-San Joaquin Delta, the potential cascading impact of an earthquake triggering massive flooding with failed levees is a nightmare of major proportions. However, residents had defeated a proposed parcel tax to finance improvements through the Bethel Island Municipal Improvement District (BIMID), leaving the district broke and laying off staff. Berding and Weill offered a series of suggestions for better planning and management of these situations.

Whether the case involves a special district like BIMID or special assessments imposed by an owner association board, the issue is the local or private responsibility for financing and maintaining the protective infrastructure to avert such tragedies. Disasters are almost never solely a function of natural forces affecting human communities. They are also a function of the location, condition, and resilience of those communities, and the greater the exposure, the greater is likely to be the long-term cost of restoring that resilience over time to prevent catastrophic loss. In many cases involving floods, landslides, or earthquakes, insurance may be unavailable or financially problematic. The ultimate result can be a bankrupt association and property owners who cannot recover their losses, let alone rebuild, yielding a combination not only of loss of life and property, but of financial calamity as well.

Pad-mounted Transformer in a floodplain not elevated. Photo by Chad Berginnis from PAS Report, used with his permission.

In the report, we sought in several ways to address the issues posed by these dilemmas. We noted, for instance, that as of 2016, the Community Associations Institute reported that 66.7 million people, about 20 percent of the U.S. population, lived in some 333,600 common-interest communities, 55 percent of which were homeowners associations, the rest either condominium or other community associations. One result is the transfer of responsibility for infrastructure within a subdivision from the municipality permitting it to the HOA itself. The long-term problem is that association leadership not only changes over time but often lacks expertise pertaining to the significant risks and responsibilities involved. We suggested that local planning and other agencies extend technical assistance to overcome this gap. This gap, however, remains a serious problem in many communities. When disaster strikes, the idea of having shifted responsibility will become transparently short-sighted because the city or county will be providing emergency response and assistance, just as is happening in Surfside. It is impossible to ignore a disaster.

We noted that many such associations assume responsibility for stormwater infrastructure, such as detention ponds, seawalls, and levees, or even private dams. If they fall into disrepair, the flooding consequences can be severe, so provisions for inspection and maintenance are critical. It is vital for such association boards to understand, for instance, that levees are never totally flood-proof and failure can have various causes. Privately built and owned levees exist across the nation, many in poor condition, according to the American Society of Civil Engineers.

In short, these owner associations have assumed responsibility for some key areas of local flood risk management, including ponds, spillways, erosion and sediment control, flood control structural repairs, drainage improvements, managing vegetation that reduces flood risk, bridge maintenance, and open space management, among other possibilities. Given the potential financial and expertise limitations of these private associations, it may be incumbent upon local governments, in approving development, to assert some degree of control over the standards for approval, for which we offered several major recommendations for requirements related to maintenance costs and final plat approval.

There is, in the end, no perfect way to ensure adequate protection against disaster, but we were hoping to raise the level of concern and discussion, and attention to detail, in the relationships between local governments and owner associations as a way to avert tragedy and financial meltdown following disaster. It is not my intent here to explore the issue in depth but to introduce readers to the depth of the questions that these situations entail. Those wishing to learn more can follow the links to additional resources.

Jim Schwab

Softly Persuasive Planning Pioneer

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Photo from David Topping’s Facebook posting of his father’s passing.

I first met Ken Topping at the American Planning Association (APA) office in Chicago on a cold day in January 1994. Chicago was suffering one of its classic Arctic blasts at something like -20°F. Ken, a tall, very polite, and articulate gentleman, had his heavy winter coat for the ride back to O’Hare International Airport toward the end of the day. On January 17, just a day or so before he arrived in Chicago, the Northridge Earthquake struck Los Angeles, an area where he had worked for many years. Ken, who was already developing a significant history of advancing what was then the nascent role of urban planning in responding to disasters, became immediately involved. Exactly one year later, on January 17, 1995, the Great Hanshin earthquake leveled much of Kobe, a major city in Japan. With his extensive acquaintances there, Ken was again on the scene.

At the time, I gently needled him that trouble followed him wherever he traveled. But the reality was that Ken took the lead in planning solutions to some of the world’s most vexing environmental challenges: natural disasters. It took years for me to understand the degree to which that initial meeting with Ken changed my life and my perspectives on what I wanted to accomplish as a professional planner. Ken lured me into the world of disaster recovery and resilience planning in a way no one else did.

When we met, it was Bill Klein, then the research director at APA, who introduced us. Just a few months before, Bill, who had somehow negotiated a modest contract with the Federal Emergency Management Agency (FEMA) to produce a Planning Advisory Service (PAS) Report on planning for post-disaster recovery, offered me the opportunity to manage the project. This was not because I had any great expertise in the subject. It was because no one else at APA did, either, but I at least had a strong background in environmental planning, and disasters are, at least in part, an environmental problem. Actually, I learned, they are many problems rolled into one, and what I was about to undertake was a challenge well above any I had encountered before, even though I was already completing a book—my second—about environmental justice. But that left the question of why Ken Topping, with noteworthy contributions to the disaster field behind him, should be dealing with a greenhorn like me.

That’s not the way he saw it. Or ever saw it. If Bill had confidence in me, then for Ken it was a chance to mentor someone new to the field and help shape the project at its roots. Over the next few years, as the project grew and expanded from its original ambitions, Ken introduced me to numerous players in this then small arena of planning to reduce the impacts of natural hazards. I did not fully appreciate the significance of some of the people I met, a fact I still regret, but it was all such new territory that I did not always fully understand who was who.

Leaders of Tomorrow

My experience with Ken was far from unique. He mentored, nurtured, and influenced the professional development of people who became some of my best professional friends and colleagues in the growing subfield of hazards planning.

Ken and US-Japan team members meeting with community leaders of the Shin-Nagata North neighborhood that was heavily damaged in the 1995 Kobe earthquake. On the front row from left to right are: Robert Olshansky, Laurie Johnson, Kazuyoshi Ohnishi, and Ken Topping (U.S. team leader). Photo provided by Laurie Johnson.

Robert Olshansky, now professor emeritus at the University of Illinois and living in the Bay Area, met Topping and Laurie Johnson, then a young planner with a bachelor’s degree in geophysics, at a conference of the Central United States Earthquake Consortium in June 1994 in Louisville, Kentucky. The conference, which I also attended, drew mostly engineers, so these three planners “stayed up late in animated conversation,” Rob recalls. Frankly, I don’t remember much of what I did there, but I do recall meeting Laurie either there or a month later at the Natural Hazards Workshop in Boulder, Colorado. I was very much the newcomer to this business back then, in any case. But Rob, Laurie, and Ken engaged in a round of post-Northridge earthquake research meetings in California, which led to a proposal, led by Topping, to compare the Northridge and Kobe earthquake recovery experiences. Eventually funded by the National Science Foundation (NSF), their work began in 1998, but the important facet was that it involved extensive international collaboration between this American trio and four Japanese researchers. It was Ken who introduced Rob and Laurie to Japanese planning. Rob confesses he had never been to Asia before the Kobe earthquake, but he and Laurie developed close connections in Japan who remain good friends 25 years later. Rob says it was Ken who insisted on the close collaboration with the Japanese and helped select the neighborhoods they chose for comparative study.

Ken with the US-Japan team conducting a long-term comparative study of rebuilding in Los Angeles and Kobe following the 1994 and 1995 earthquakes, respectively, during a team meeting in 2000 in Kobe. Left to right are: Robert Olshansky, Laurie Johnson, Ikuo Kobayashi, Hisako Koura, Yoshiteru Murosaki (Japan team leader), Kazuyoshi Ohnishi, and Ken Topping (U.S. team leader). Photo provided by Laurie Johnson.

The remarkable aspect of all this for Laurie Johnson, now a prominent hazard planning consultant based in San Rafael, California, was Ken’s acceptance and support though, she says, “I was barely in my 30s and had only a few years of relevant professional experience” when they first met. Their first contact, she says, came in 1990, when Ken spoke at the International Symposium on Rebuilding after Earthquakes, hosted at Stanford University by Spangle Associates, the firm for which she was then working. Spangle had produced a study that was among the first I studied in this emerging field, examining four case studies of post-disaster recovery. It profoundly influenced my view of what happens to communities in a disaster.

Ken, says Laurie, “wowed the group with his presentation on LA’s efforts to prepare a first-ever, pre-disaster recovery plan for the city before a major disaster like an earthquake struck.” Ken was then the planning director of Los Angeles. Fortunately, a draft of what became the Los Angeles Recovery and Reconstruction Plan had been completed when the Northridge earthquake occurred. The city formally adopted it a year later. Another NSF study led by Spangle Associates, in which Laurie was involved, found “that the plan was instrumental in contributing to the high level of staff performance” after the earthquake, helping most city departments to understand their responsibilities and prepare to perform them.

Innovations

By the mid-1990s, Ken was a tall, white-haired gentleman in his 50s, a strong intellect with a gentle voice. In coming years, in part working on the project I was leading, he made a significant impression on our colleagues at FEMA. Terry Baker, former National Team Leader for Hazard Mitigation Planning, recalled him as “always generous with his time and thoughts. A luminary in the field, although you wouldn’t know that from his kind and down-to-earth demeanor.” Similarly, Cecelia Rosenberg, who served as both project officer and grants manager at FEMA, recalls his “softly persuasive ways and quiet wisdom.” He was never a loud voice, but people knew they were speaking with someone who mattered.

He mattered because of a history of innovations, a willingness to try new things to solve emerging problems. He was well ahead of most planners in recognizing how planning could be used to reduce disaster risk. In a career that that was already well underway amid the environmental planning revolution of the 1970s, he consistently found ways to generate meaningful change. By 1973, he was planning director in San Bernardino County, California, where, as California Polytechnic State University-San Luis Obispo (Cal Poly) Professor William Siembieda notes, he “created one of the first wildfire mitigation programs and an overlay zone on 19,000 square miles of desert land for future regional conservation.”

Ken’s spirit of innovation was not limited to southern California. It was a hallmark of his career. Working with me and a team of contributors to Planning for Post-Disaster Recovery and Reconstruction (PAS 483/484, 1998), his singular contribution lay in crafting a model ordinance for post-disaster recovery that is still in use today. The model offers local governments a means of structuring governance of the recovery process after a major or catastrophic disaster, assigning responsibilities among city agencies and empowering them to handle such urgent tasks as post-disaster demolition and intergovernmental coordination. It helps them create order out of chaos with a management structure for long-term recovery that can be activated as soon as the city declares an emergency. It expedites recovery by saving precious time after disaster strikes. I can state with certainty that no more than a handful of jurisdictions had adopted any similar approach prior to the release of our report.

More than a dozen years later, after I had convinced FEMA to fund an overhaul of the original post-disaster study, adding a bevy of online resources to a new report (Planning for Post-Disaster Recovery: Next Generation, PAS 560, 2014), Ken sought to update the model ordinance as part of the project. When I directed his attention to what I considered an important innovation by the city of Cedar Rapids, Iowa, after its massive 2008 flood, he did not hesitate to contact former Community Development Director Christine Butterfield for details. The new model thus included language requiring municipal licensing of building repair contractors to prevent the sort of fraudulent repairs that had been rife in places like New Orleans after Hurricane Katrina. Ken knew a good idea when he saw one, and Cedar Rapids had done something important. A major contributor to the later PAS Report was Laurie Johnson, who produced two of the most important chapters, dealing with the recovery planning process and implementation of recovery plans. Like me, under Ken’s influence, Laurie had come a very long way in the planning field since first meeting Ken.

Bill Siembieda says this focus on innovation was also evident in Ken’s relationship with Cal Poly, which began in the spring of 2000 and lasted two decades. Ken was a part-time lecturer and George Hasslein Chair in the College of Architecture and Environmental Design, City and Regional Planning Department. His efforts included an international symposium on risk reduction, multidisciplinary courses focused on mitigation and risk reduction, and work with state agencies, most notably on the 2010 California Multi-Hazard Mitigation Plan, in which “he created a set of working groups within the state government” to discuss topics of mutual interest. He believed strongly in the value of cross-disciplinary discussions to achieve a more integrated approach to solving problems.

This focus on integration led to Ken’s involvement in what I regarded as my own signature project, which resulted in the PAS Report, Hazard Mitigation: Integrating Best Practices into Planning (PAS 560, 2010). For his accomplishments and leadership in city planning and management, environmental and hazard resilience planning, Ken was inducted into the College of Fellows of the American Institute of Certified Planners in 2000 and honored with a special session at the 2019 conference of the California chapter of APA.

Multiple Dimensions

Ken died on March 5 from complications of Parkinson’s Disease at 85. He and his wife, Phyllis, spent the last year or so in San Clemente Villas in a seacoast town in Southern California. I had a few last conversations by phone with him after that move from Cambria, California, where he had served at one point as the general manager for the Cambria Community Services District and later chaired the San Luis Obispo County Planning Commission, where he demonstrated his penchant for conservation by helping establish the Fiscalini Ranch as a Pacific Ocean coastal bluff park. Siembieda credits Ken’s “great persistence” and a “willingness to put time and energy into each work product” for his vision to support large solar farms in the county and his opposition to a “large petroleum industry oil train project.”

In one of those calls, he shared with me that he had recently fallen while trying to maneuver his walker in a parking lot. It was clear that time was taking its toll, but in a later call, ever cheerful, he gently told me how much he admired my own career path. He seldom missed an opportunity to encourage the people he had mentored.

Ken with Phyllis, his wife. From David Topping’s Facebook notice about his father’s passing.

One of the more fascinating aspects of his own story, however, was his birth in 1935 in Kobe, Japan, to a pair of American Baptist missionaries. Before the outbreak of World War II, his family found it necessary to return to the United States, where he grew up in San Francisco and Boulder, Colorado, before the family returned to Japan after the war. He later returned to the U.S. for college at the University of Redlands in California, where he met Phyllis, with whom he had two sons, and earned a degree in sociology, followed by further studies at the University of North Carolina at Chapel Hill. They returned to California, where Ken began a career as a regional planner in Los Angeles but also earned a Masters in Public Administration in 1972 from California State University, Los Angeles. That led to his becoming planning director for San Bernardino County in 1973, and later the city of Los Angeles, appointed in 1986 by Mayor Tom Bradley. One of his achievements was Los Angeles’s first zoning update using geographic information systems (GIS), then a new technology.

The environment was clearly one of his high priorities, something readily apparent in April 2012, when he and Phyllis walked my wife, Jean, and me through the Fiscalini Ranch Preserve before treating us to lunch at a local Cambria restaurant. But he also had a deeply empathetic personal side. I had been in Los Angeles the prior week at the APA National Planning Conference (NPC), much of which became for me a daunting experience as I suffered an attack of prostatitis, though I did not know the diagnosis before visiting a local urgent care center. Exhibiting my stubborn streak, on a Saturday evening early in the conference, I showed up in a hotel meeting room after getting dressed, despite feeling drained and weak, to lead a meeting of the project team for the Next Generation project. Ken took one look at me and would have none of it. His personal touch was evident as he turned to Kathy Smith, our FEMA project officer, and said, “Look at him. He’s in no condition to run a meeting.” At Ken’s urging, It was rescheduled subsequently for a remote meeting from Cal Poly the day after our visit to Cambria.

Ken seated along with children and staff at the Morioka Kindergarten in 2013. Photo provided by Laurie Johnson.

Laurie Johnson believes many of Ken’s finer traits can be attributed to his exposure to Japan. She recalls “a beautiful tribute to Ken and his family’s ties to Japan organized by Professor [Haruo] Hayashi (Kyoto University) and colleagues” in March 2013. They were documenting recovery efforts in northern Japan following the 2011 Tohoku earthquake and tsunami, but the group visited a kindergarten founded in the city of Morioka by Ken’s grandmother more than a century earlier. “The kindergartners assembled and tried to sit patiently as the history was explained and Ken was honored,” she says. “They then sang a song, “Small Garden,” that his grandmother had taught her classes many years ago and which classes still sing today.”

From David Topping’s Facebook notice of his father’s passing.

Ken tapped a beat, she says, which reminded her that Ken had taught himself to play the bass and guitar and had played before for the joint research team at home in Cambria in 2002. Music was another element of his humanity and family life (including a family band), and that focus influenced his two sons to pursue careers in music. Ken went on that day at the school to remind the children to continue to learn as they grew up, how he was there himself to learn about the earthquake, and about the value of friends around the world. “So please be my friend, too,” he told them, “and keep learning all of your lives so that you can help make the world a better place.”

Connecting People

As that vignette illustrates, there was nothing more important for Ken Topping than connecting people, particularly people of talent and determination, with the resources and networks they needed to succeed at making the world a better place. And that mission spanned international boundaries.

Professor Norio Maki of Kyoto University was one of those who benefited. He describes Topping as “my mentor on planning.” In addition to working with Ken in Japan, he learned greatly from collaboration on a project in Marikina, a city in the Philippines. The goal was to develop an earthquake mitigation plan through workshops with city staff. In what he describes as “real on-the-job training,” Ken advised him on workshop presentations and the use of GIS. Despite his university degrees, he says, “I think I got my degree in planning from Ken.”

Rob also facilitated Rob Olshansky’s now permanent connection to Japan. Ken helped arrange for Rob to follow him in a one-year visiting fellowship at Kyoto University, with Professor Hayashi. The cultural shift could have been deeply challenging, but Rob brought his children along for “a life-changing year at school in Japan.” Ken advised him on “important Japanese etiquette do’s and don’ts, in addition to navigating the Japanese train system.” Eight years later, Rob was able to pay it forward by doing the same favor for another visiting professor, Jim Goltz. And so the waves of influence move forward. Rob also believes that a book he and Laurie co-authored, After Great Disasters (reviewed on this blog), “would never have happened without Ken’s influence.”

I could go on, and Rob, Laurie, Terry, Cecelia, Bill, and Norio submitted numerous and extensive comments for my use, but the overall point seems clear. Ken is gone, but as with all such special and creative people, the lesson for the rest of us is simple—to continue to extend that positive influence into future generations in our chosen field. And beyond, wherever possible. I hope we are still doing that, in our own ways.

Jim Schwab

In Harm’s Way or Dodging Disaster?

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President Joe Biden’s $2.3 trillion infrastructure bill aims to fix much that is ailing in America, and its sheer size is drawing predictable—and short-sighted—fire from Republicans in Congress. The nation has a great deal of aging infrastructure, which will eventually pose a massive challenge to economic development. But the American Jobs Plan also takes aim at a growing, urgent, and critical need for infrastructure to cope with the impacts of climate change. These affect many kinds of infrastructure, including transportation, water, wastewater, and energy and communications systems. There is nothing patriotic, it seems to me, in being so oppositional as to allow our nation to deteriorate, Texas-style, in the face of changing climate conditions. There is also nothing about what happened in Texas with frozen energy systems that contradicts “global warming.” The research clearly shows that climate instability, including seemingly less predictable winter storms, is part of the overall impact of a generally warming climate. Nobody but a charlatan ever promised that climate change would be a simple topic.

Earlier this year, I reviewed a book by a former Toronto mayor about what cities are doing about climate change. Later, I reviewed Doug Farr’s elaborate tome on how the design professions are providing solutions to climate challenges in new forms of housing and urban development. In addition, a year ago, I reviewed a new Planning Advisory Service Report by the American Planning Association on planning for infrastructure resilience. I remain committed to highlighting resources for planners, public officials, and interested citizens on issues of climate resilience.

In this post, I feature a new book on community solutions to climate resilience. In Harm’s Way, by John Cleveland and Peter Plastrik, provides a set of detailed ideas for building climate resilience in our communities. In my view, its dominant values in contributing to the discussion of climate change and community adaptation center on two crucial issues: first, how to finance investments in climate resilience, and second, how to build the policy foundations for managing retreat from the most vulnerable coastal areas as a means of avoiding major “natural” disasters. The two co-authors bring interesting backgrounds for such discussion. Cleveland is executive director of the Innovation Network for Communities (INC) and a member of the Boston Green Ribbon Commission, a group of business and civic leaders supporting the Boston Climate Action Plan. Plastrik is vice-president of INC and co-author of an Island Press book on networking for social change.

The Biden plan faces a challenging uphill climb toward passage in Congress. The money it promises for what it offers to do is heavily dependent on changes in corporate taxation that may face daunting opposition in Congress. In any case, even passage of the plan does not necessarily mean that every valuable potential investment at the local level in more resilient infrastructure will be assured of adequate funding, nor does it mean that local leaders will always agree with federal priorities for their own communities. The struggle to implement the plan will face years of challenges. In short, this is an important time for the vital discussion by Cleveland and Plastrik on how we can best find the money for essential investments in climate resilience.

Financing climate resilience is essentially an exercise in risk management. The first ingredient in successful risk management is recognition of the problem, which at a national scale has been a political football because of right-wing denial that a problem exists. For four years, this denial was centered in the White House, but the nation clearly chose a sea change on climate policy in the 2020 election. But that does not mean that nothing was happening outside the Trump administration—far from it. Local financial innovations were afoot in numerous American communities, including large cities like Boston, Miami, and San Francisco. Indeed, networks of such cities have been exploring avenues for fostering climate-related investments. The issue in many cases, because local governments seldom have large stores of cash awaiting brilliant ideas, is hunting for money in the financial markets. In many ways, the hunt for climate-resilient investments is a race against time for cities that may face climate-related disasters that may cost far more in damages than the investments they are contemplating to prevent such outcomes. Misalignments between resources and needs are commonplace, the environmental burdens of climate change, particularly on low-income and minority neighborhoods, are often enormous, and public revenue is often insufficient to address the problem. The authors thus focus on the need for innovations in climate resilience finance to meet this challenge. Given the likelihood that at least some of the Biden plan will require some level of local and state matching funds, this issue will remain potent. The authors outline a range of tools for creating these new financial structures. This task is far from impossible, however. Bond-rating firms and others are already recognizing the inherent risks involved in ignoring climate change. Why not invest on the positive side through mitigation and adaptation?

Case studies are always helpful in making clear that some community, somewhere, is at least testing solutions, many of them proving successful. The authors outline a playbook for paying for climate resilience, using eight examples in which communities have generated local revenue, imposed land-use costs on unwise development, leveraged development opportunities to achieve climate resilience, and pursued equity, among other options. Local governments in fact have a range of regulatory tools and incentives they use to leverage many other decisions by businesses and residents, many of the options, such as floodplain management rules, are already common. What is needed is the imagination for new ideas on how to use those tools, as well as accessible guidance on how well those ideas are working and under what circumstances. One city highlighted in this chapter is Norfolk, Virginia, a low-lying city on the Atlantic coast that faces a future laden with nuisance flooding due to sea level rise. Its system of four color-coded zones indicates relative levels of safety or vulnerability as a means of directing redevelopment to safer areas while demarcating those in need of protection. Zoning may not seem like a financial issue, but it is a quintessential financial tool in dictating what sort of development is permissible in what location, thus channeling investment to those areas the city deems acceptable for certain purposes. The problem is that the power of zoning has not always been used with a vivid awareness of the environmental hazards that are tied to urban geography.

In the U.S. system, municipalities are creations of the states, which establish the rules under which cities operate. Notwithstanding the magnitude of federal largesse, it is thus also fitting that the book contains a chapter on how states can help communities invest in climate resilience. States can serve as both barriers to and intentional supporters of local innovations in financing climate resilience.

Collapsed houses after Hurricane Sandy on the Jersey shore. The results of climate-driven disasters are seldom pretty.

In the end, however, all of this depends to some degree on political will, a subject addressed in a final chapter on managed retreat under the caption, “Can it happen here?” Communities have long shied away from open discussion of retreat from the shoreline or highly volatile riverfronts. Seashore land has historically been some of the most valuable real estate in the nation, and not only because it can become a haven for rich owners of second homes, but because beaches attract tourism and harbors attract economic development and transportation infrastructure. What public official wants to say no to new shoreline development, let alone talk of managing retreat from existing settlements? Yet the sheer long-term cost of such reluctance to lead with courage is something I discussed in another book review early last year. The Geography of Risk was a book that detailed wave after wave of catastrophic destruction on the New Jersey barrier islands as a result of investments by entrenched real estate interests that resisted risk-based land-use reforms.

But Cleveland and Plastrik insist that retreat will happen, and the question is not if, but when, and under what circumstances. Basically, they say, in coastal areas threatened by climate change and sea level rise, retreat will be driven either by disasters, or by the market, or by plans. In the first instance, nature itself will make decisions that force painful choices that we cannot control. In the second, recognizing the inherent dangers of such stubborn persistence, market forces will withdraw investment from areas that are no longer viable as a result of climate change, with major losses for those who either lack the means to move or who fail to read the tea leaves. The final choice, plan-driven retreat, is the only one that allows the community some degree of sovereignty in the matter, deliberating about the direction of retreat, the means of financing it, and ways of mitigating financial consequences for those involved. The problem is finding articulate, visionary leadership that can lead the community to its moment of truth.

Jim Schwab