Preparing for Natural Disasters

3.1 Chapter Summary

Since management activities of natural disaster planning must anticipate everything from direct encounters with disaster and damage to mediating strong public reactions, a brief summary of the previous planning observations are provided to begin the discussion. Miller (1988) suggests that contingency plans must exist to manage storm damage, provide for rapid restoration of utility services, clear debris from streets, remove hazards, and to repair other essential services. He advocates that well trained crews need to be available for rapid mobilization. Further, contingency funds should be budgeted for overtime pay.

If the disaster damage is greater than the municipal workers can handle, a list of cooperating private contractors or other neighboring collaborating communities or cities should be cataloged to assist in storm damage clean up. Telephone numbers plus related agency names, administrators of higher levels of government and volunteer organizations should be available. These authorities stand ready to assist communities with catastrophic damage control and recovery measures.

3.2 Chapter Outline

     I. Planning
          A. Types of Plans
          B. Planning Keys to Success
     II. Training
          A. Potential Training Categories
     III. Planting Tips
     IV. Planning Tips
     V. Examples of Activities for Trained Volunteers
     VI. For More Information / References
          A. Appendix---The Right Tree for the Right Place
          B. Appendix---How to Recognize - and Prevent - Hazard Trees
          C. Appendix---Plan to Plan
          D. Appendix---Handbook for Volunteer Tree Projects

3.3 Planning

The planning process is essential for mitigation success, both before and after natural disasters. Natural disaster planning must be a dynamic and flexible process, due to the unpredictable nature of natural disasters. According to Morentz et al. (1982), "Planning is a process of anticipating future needs and programming resource expenditures in light of expected hazardous conditions and human vulnerabilities."

At the vegetation level, the homeowner or municipal tree manager must visualize trees as they grow and mature, and plan for the changes. To paraphrase Fazio (1988), "A few cents of preventative planning are worth many dollars of remedial arboriculture." Fazio advises several points for vegetation planting and maintenance, and these are presented along with recommendations from a number of arborists and urban foresters in the upcoming sections titled "Planting Tips," and "Planning Tips."

Several types of plans may be made that would be extremely useful in the event of a natural disaster. These plans are as follows:

• Natural Disaster Mitigation Plan - This plan would serve as the guiding document for managing the tree resource in a community before, during and after a storm. Plan could include
  • Tree care prior to a storm
  • Storm response and clean up
  • Rules and regulations regarding private property debris pick-up and disposal
  • Regreening and recovery
  • Saving and repairing damaged trees
• Arboricultural/Tree Care Expert Plan - This plan would serve as a guide for a private company in the event of a storm. Refer to article at end of chapter titled "Plan to Plan." Plan could include:
  • Equipment needs
  • Additional assistance (financial, staffing, other tree care firms)
• Comprehensive Urban Forestry/Master Street Tree Plan - This plan would serve as a community's guide to tree planting, maintenance and care.

A Community may wish to consider the following elements or "Keys to Success" as they plan for natural disasters:

• Have a core group of people that manage activities. Be sure members of this core group are empowered to make decisions. Include representatives from the following groups:
  • Police, Fire, and Public Works Department
  • Forestry Department
  • Private Arboricultural Firms
  • Media contacts
  • Climatological consultant
  • Utility company(s)
  • Nurseries
• Coordinate the tree-related mitigation plan with any other mitigation plans in the community (fire, police, utility).
• Assign administrative responsibility to plan actions to assure that nothing is overlooked and that someone has the authority to accomplish the necessary tasks.
• Review and update the plan annually.
• Provide adequate training to all possible players.

Communities have differing needs and resources. Depending on the size of the community, the budget, staff, etc., communities will vary in their ability to plan for and respond to natural disasters. These factors must be considered. if a community has very limited financial resources for urban forestry, it may be more beneficial for them to develop a less detailed comprehensive urban forestry plan, and target their limited funding towards removal or pruning of hazardous trees.

3.4 Training

In Section 2.4 of this document, which discusses mitigation categories, the topic of professional training was presented in terms of options for training. To emphasize this concept, training can be technical or quite practical, depending on the audience. Morentz et al. (1982) note that highly technical training is appropriate for the "knowers," while more practical training is appropriate for the "doers." Knowers are the individuals that train the people who will be doing the training. Doers are the trainees. Oftentimes these doers are volunteers. Working with volunteers requires an understanding of their motivations, limitations and needs. Excellent resources for information on working with volunteers and sources of volunteers are provided at the end of this chapter and in Chapter 8 of this manual. The following prescriptive activities should be noted when training occurs:

1. Plan carefully.
2. Base the training program on sound technology and research information.
3. Use adequate equipment.
4. Allow sufficient time for learning and set aside time for questions.
5. Use a variety of techniques; hands-on experience is extremely useful.
6. Use instructors (where possible) who have experienced what they are training.
7. Develop credibility with the trainees.

Continuing education is very important to keep staff and crews up to date with changes and new techniques in urban forestry management and mitigation technology. Training should not be considered a "one-time" experience, it should be continual. Potential training categories may include:

• Planting the right tree in the right place
• Choosing proper nursery stock
• General tree care and maintenance
• Proper tree planting techniques
• Tree pruning
• Storm clean up, and safety hazards when clearing debris

Of special note: All activities related to natural disasters must be planned ahead of time and practiced periodically so that everyone is ready to respond rapidly and effectively during the actual event.

3.5 Planting Tips

1. Large crowned trees should not be planted under or near utility wires, too close to buildings and other structures.

2. Note: Most trees have the greatest percentage of their roots in the upper 18 inches of soil; therefore, it is critical that roots are not severed or cut, and that roots have enough room to grow and establish themselves and to anchor the tree. (See Photographs 1 & 2.)

Photo 1. Inadequate amount of space available for root growth and anchoring. (Florida Dept. of Ag. & Consumer Services)		Photo 2. Results of inadequate root space. (Florida Dept. of Ag. & Consumer Services)

3. Select proper tree species based on site considerations. Refer to the publication at the end of this chapter titled," The Right Tree for the Right Place." Contact your State Forestry Office for a list of recommended trees for your state or region. (Address and telephone numbers are listed in Chapter 9, Section 9.5 - State Forestry Offices.)

4. Avoid planting brittle species on sites where breakage will cause future problems.

Note: In certain environments, many of these "brittle" species may thrive (for example, in inner city areas). Rather than having an environment devoid of trees, it may be best to allow these somewhat less desirable species to remain -- unless they represent a potential hazard.

5. Select healthy, quality nursery stock for tree planting (refer to Diagram 1). Be sure to obtain trees that meet your state's Grades and Standards. This will reduce pruning requirements in the years following planting and help ensure that trees are healthy when they reach the planting site.

Diagram 1. Recommendations for choosing quality nursery stock. (Florida Dept. of Ag. & Consumer Services)

6. Where autumnal ice storms are common, avoid planting species that retain their foliage late into the fall. These species can capture a greater weight of ice and are, therefore, more susceptible to breakage. The following species tend to keep their foliage until late in the fall (Harris, 1992):

• European white birch (Betula pendula)
• Sweetgum (Liquidambar styraciflua)
• Magnolia variety (Magnolia x soulangiana)
• Scarlet oak (Quercus coccinea)
• Pin oak (Quercus palustrus)
• English oak (Quercus robur)
• Weeping willow (Salix babylonica)

7. Where spring ice storms are common, avoid planting species that leaf out early. Example of these species include (Harris, 1992):

• Boxelder (Acer negundo)
• Tulip poplar (Liriodendron tulipifera)
• European mountain ash (Sorbus aucuparia)
• Siberian elm (Ulmus pumila)

8. During driveway and sidewalk replacements or other excavation near trees, keep root damage to a minimum. It is best to avoid cutting roots. Sidewalks may need to be moved to give tree roots adequate room to grow. Auguring under root systems when working with underground utilities is recommended.

9. Beginning when they are young, prune trees to prevent development of weak form. If possible, annually prune and shape newly planted trees to properly form for at least five years after planting

10. If possible, annually prune dead or weakened limbs. if the tree has structural problems, it may be necessary to periodically thin excess branch wood from the crown. The goal is to produce a well-shaped tree with the center of gravity squarely over the trunk. Develop a crown that allows the wind to flow through it, rather than being trapped in it like a sail. (See Photograph 3.)

Photo 3. Trees on home. (National Oceanic and Atmospheric Administration)		Photo 4. Tree had been topped. Most limbs broke off at location of stub cuts. (Florida Dept. of Ag. & Consumer Services)

11. Tree topping and other improper pruning results in excess sprouting of new limbs which are poorly anchored. These limbs are easily damaged during a storm and can be considered dangerous. Tree topping should be totally discouraged. (See Photograph 4.)

12. For particularly valuable trees, have a professional arborist strengthen wide-spreading tree crowns by installing flexible cabling and/or rigid bracing when necessary.

13. Keep trees healthy and vigorous by periodically watering or fertilizing when required. Also, protect the soil surrounding trees from compaction or being lowered or raised. When necessary, soil aeration techniques may enhance oxygen flow to the roots and thus increase the vigor of the tree.

3.6 Planning Tips

1. Within the planning process, removal of hazardous trees is also part of prevention. A tree is considered a hazard when the failure of one or more of its parts could result in property damage or personal injury.

Note: To be considered a hazardous situation, the following must be present: A tree with the potential to fail, an environment that would contribute to the failure, and a target (person, object, property) that would be injured or damaged (Matheny and Clark, 1991). (See Photograph 5.) Under the law in most states, both public and private tree owners are required to recognize dangerous tree conditions and to correct them. Private owners, as well as municipal governments, can be held liable for injuries or damage to the property of others if they fail to remove a tree that falls under reasonably foreseeable circumstances. Refer to Merullo and Valentine's 1992 Arboriculture and the Law for detailed information.

Photo 5. Trees on home. (National Oceanic and Atmospheric Administration)

2. Lightning protection systems, e.g. lightning controls and rods, are one form of device to protect mature trees which have high value.

3. When pursuing national disaster recovery funds, it is very important that a community have relevant tree-related documentation to support any funding requests. Consider completing a street tree survey or inventory. Tree inventory information and work records provide documentation to support these requests.

4. Locate and identify any trees or natural areas of special significance. These trees may have historical value, may be highly valued by the community, or may host rare or endangered species. Thus, plans should include care before, during and immediately after a natural disaster.

5. Keep copies of up-to-date land use plans, and identify locations where tree debris can be staged and dumped. Note any sites or natural areas that must be protected. These areas may be inadvertently used for debris storage, and thus damaged.

6. Keep multiple copies of local maps and land use plans for use by non-local individuals that may come and provide assistance. These individuals may be unaccustomed to the surroundings.

7. Develop a tree salvage plan to maximize usage of wood debris and minimize the amount that is landfilled or burned.

8. Prepare for a loss of normal means of communication (telephone) after a natural disaster. Cellular phones are a good option.

9. Identify staff members that will be available during and immediately after a natural disaster. Develop work schedules that allow these individuals to rest and spend time dealing with the impact of the disaster on their own homes or families.

10. Establish a prearranged reporting procedure for forestry and field personnel that would go into operation automatically, depending on pre-specified weather conditions.

11. Develop written or video Public Service Announcements that can be easily modified and distributed before, during and after a natural disaster. Topics may include:

• Chain saw safety
• Safety hazards when clearing debris
• Debris disposal options
• Equitable vendor prices
• Selecting a qualified arborist or tree care professional
• Selecting quality nursery stock
• Benefits of trees, and the advantage of a healthy and safe urban forest
• How to identify trees worth saving

12. Develop a community tree ordinance that contains replacement standards.

13. Develop formats for post-disaster workshops that can provide technical training and assistance to citizens on tree repair.

3.7 Examples of Activities for Trained Volunteers

With any activity involving volunteers, it is critical that they know exactly what is expected of them. A thorough job description that lists all expected activities and responsibilities is an excellent resource.

1 . A trained volunteer with specific knowledge of the town's street names and community geography can help to guide contractual clean up crews to specific sites where trees were blown over or damaged. Note: Volunteers should not be sent to the field until all downed power hazards have been identified.

2. An assigned volunteer can be in charge of hand equipment such as axes, shovels and saws that are to be distributed to workers.

3. A trained volunteer could be in charge of records including an inventory of damaged or destroyed trees, time records of clean up crew, and clean up vehicle utilization.

4. A volunteer amateur radio operator may be used to facilitate communication, especially if telephone lines have been broken.

5. A highly trained volunteer with knowledge of basic tree planting and maintenance can participate in selected pruning, planting and tree care activities.

6. Volunteers with specialized skills such as photography, computers, drafting, and graphic design can augment programs.

3.8 For More Information

References:

Anderson, L.M. and T.A. Eaton. Liability for damage caused by hazardous trees. Journal of Arboriculture 12 (1986): 189-195.

Burban, L.L. 1992. Handbook for volunteer tree projects. Minnesota Shade Tree Advisory Committee Community Outreach Task Force, MN DNR.

Fazio, J.R. 1987. How to prune young shade trees. Tree City USA Bulletin No. 1.

Harris, R.W. 1992. Arboriculture: Integrated management of land-scape trees, shrubs, and vines. Second Edition. Englewood Cliffs: Prentice Hall.

Herman, R.E. 1982. Disaster planning for local government. New York: Universe Books.

Merullo, V. Liabilities and duties associated with trees which abut streets and highways. Journal of Arboriculture 14 (1988): 129-131.

Merullo and Valentine, 1992. Arboriculture and the Law. International Society of Arboriculture, Savory, IL 61874.

Miller, R. 1988. Urban forestry: Planning and managing urban green-spaces. Englewood Cliffs: Prentice Hall.

Pirone, P. 1988. Tree Maintenance. Oxford University Press, New York, 514 pages.

Shigo, A.L. 1991. Modern arboriculture. Shigo and Trees, Associates. 4 Denbow Road, Durham, NH 03824-3105.

Shigo, A.L. 1986. A New Tree Biology. Shigo and Trees, Associates, 4 Denbow Road, Durham, NH. 595 pages.

Trees Forever. 1991. Tree project handbook. Trees Forever, 776 13th Street, Marion, IA 52303.

Appendices:

     Appendix A--The Right Tree for the Right Place
     Appendix B--How to Recognize - and Prevent - Hazard Trees
     Appendix C--Plan to Plan
     Appendix D--Handbook for Volunteer Tree Projects

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