Urban LandInstitute$

Principles forTemporaryCommunities

Principles forTemporaryCommunities

Principles forTemporary

CommunitiesJohn K. McIlwain Alexa BachMary Beth CorriganRichard HaugheyPrema KatariGeorge J. KellyMichael Pawlukiewicz

The Urban Land Institute gratefully acknowledges the financial support of the Fannie Mae Foundation in underwriting this project.

About ULI–the Urban Land Institute

ULI–the Urban Land Institute is a non-profit education and research institutethat is supported by its members. Its mis-sion is to provide responsible leadership inthe use of land to enhance the total envi-ronment. ULI sponsors education programsand forums to encourage an open, interna-tional exchange of ideas and sharing ofexperiences; initiates research that antici-pates emerging land use trends and issuesand documents best practices; proposescreative solutions based on that research;provides advisory services; and publishes awide variety of materials to disseminateinformation on land use and development.Established in 1936, ULI has more than29,000 members in 80 countries represent-ing the entire spectrum of the land useand development disciplines.

Richard M. RosanPresident

Recommended bibliographic listing:

McIlwain, John K., Alexa Bach, Mary Beth Cor-rigan, Richard Haughey, Prema Katari, George J.Kelly, and Michael Pawlukiewicz. Principles forTemporary Communities. Washington, D.C.:ULI–the Urban Land Institute, 2006.

ULI Catalog Number: T32, 10 pack; T33, Single CopyISBN: 978-0-87420-957-0

Copyright 2006 by ULI–the Urban Land Institute1025 Thomas Jefferson Street, N.W.Suite 500 WestWashington, D.C. 20007-5201

Printed in the United States of America. Allrights reserved. No part of this book may bereproduced in any form or by any means, elec-tronic or mechanical, including photocopyingand recording, or by any information storageand retrieval system, without written permis-sion of the publisher.

ULI Project Staff

Rachelle L. LevittExecutive Vice President, Policy and PracticePublisher

Mary Beth CorriganVice President, Advisory Services and PolicyPrograms

John K. McIlwainSenior Resident FellowULI/J. Ronald Terwilliger Chair for Housing

Michael PawlukiewiczDirector, Environment and Policy Education

Alexa BachULI Scholar in Residence

Nancy H. StewartDirector, Book ProgramManaging Editor

Sandra F. ChizinskyManuscript Editor

Betsy VanBuskirkArt DirectorBook and Cover Design; Layout

Craig ChapmanDirector, Publishing Operations

Cover photograph: FEMA.

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This publication was made possible with the help of many individuals who gavegenerously of their time and talent. My thanks go to the following:

Bill CollinsChief Executive OfficerGAF Materials Corp.Wayne, New Jersey

Cheryl G. CumminsChief Operating OfficerULI–the Urban Land Institute

William R. KleinDirector of ResearchAmerican Planning AssociationChicago, Illinois

Anita KramerDirectorRetail DevelopmentULI–the Urban Land Institute

Edward T. McMahonSenior Resident FellowCharles E. Fraser Chair for Sustainable DevelopmentULI–the Urban Land Institute

David MulvihillManaging DirectorProfessional DevelopmentULI–the Urban Land Institute

Shekar NarasimhanManaging PartnerBeekman Advisors, Inc.McLean, Virginia

J. Michael PitchfordChief Executive Officer/PresidentCommunity Preservation and Development Corporation (CPDC)Washington, D.C.

Reena Racki, AIAPrincipalReena Racki AssociatesWashington, D.C.

Randall K. RoweChairmanGreen Courte Partners, LLCLake Forest, Illinois

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Acknowledgments

Dean SchwankeVice President of Development Trends and AnalysisULI–the Urban Land Institute

Adrienne SchmitzDirectorResidential Community DevelopmentULI–the Urban Land Institute

DJ SessnerSenior PlannerTransitional Neighborhood DevelopmentJoint Housing Solutions CenterFederal Emergency Management AgencyBaton Rouge, Louisiana

ULI Project Staff

Rachelle LevittExecutive Vice PresidentPolicy and PracticeULI–the Urban Land Institute

John K. McIlwainSenior Resident FellowULI/J. Ronald Terwilliger Chair for HousingULI–the Urban Land Institute

Mary Beth CorriganVice PresidentAdvisory Services and Policy ProgramsULI–the Urban Land Institute

Michael PawlukiewiczDirectorEnvironment and Policy Education

Richard HaugheyDirectorMultifamily DevelopmentULI–the Urban Land Institute

Alexa BachAssociateULI–the Urban Land Institute

Prema KatariScholar in ResidenceULI–the Urban Land Institute

George J. KellyScholar in ResidenceULI–the Urban Land Institute

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The first and most important thing to notice about this latest in ULI’s Princi-ples series is its title. Following a disaster, natural or otherwise, the first

thing victims need, after food and health care, is shelter—and this need maycontinue for weeks, months, or even years.

In the case of the 2005 hurricane season, the immediate occasion for this publi-cation, the need is for tens of thousands of temporary homes. However, whentwo or more temporary houses are put together, a community is created: this iswhy ULI decided to study how best tocreate temporary communities, not justtemporary housing.

A home, temporary or permanent, ismore than four walls and a roof. Thequality of a home is determined bothby the living space within it and by the neighborhood surrounding it. Theimportance of surroundings is clearfrom the fact that people are oftenwilling to live in a house of lower qual-ity if the neighborhood is one that theyfind desirable. Unfortunately, this facthas been ignored in past efforts to pro-vide shelter for people displaced by dis-aster; as a result, what began as acompassionate response to need ended by compounding the suffering of thoseforced to live in such environments. In short, providing temporary housing with-out paying attention to the design and functioning of the whole community cre-ates a dysfunctional environment that undermines the residents’ ability torecover—emotionally, physically, and economically.

The purpose of the principles enumerated here is to bring community-buildingexpertise and experience to bear on the planning and management of temporarycommunities for disaster victims. Incorporating these principles is especiallycritical in the case of the 2005 hurricane season, which has created needs fortemporary shelter that will likely last for years. The families who live in tempo-rary communities are recovering from major shocks: they have lost homes, jobs,and in some cases loved ones, and need a wide range of support services to getback on their feet, both emotionally and financially. Ignoring these needs whenthey can be provided for in the design and development of temporary communi-ties is insensitive and unproductive.

Introduction

The principal idea behind this publication is not that tem-porary communities should become permanent, but thateven a temporary community should meet the full range ofits residents’ needs—not only for shelter, but for safety,social services, employment, education, recreation, and asense of place, ownership, and community. It is also impor-tant to recognize that temporary communities do not, andshould not, exist in a vacuum. They are located in existingcommunities, and should be integrated into those commu-nities. And their effects—positive or otherwise—on exist-ing communities must be taken into account.

It may be argued that adherence to the principles articulated here will add tothe time and cost of providing shelter in moments of crisis. This is all the morereason to ensure that tested, successful models of temporary communities existbefore a disaster occurs. With proper planning, it should take no more time tocreate a well-designed community than a sterile, barrackslike environment. Theinitial cost may, in fact, be somewhat higher, especially where needed amenitiesare not already available in the immediately surrounding neighborhood. Anyadditional upfront costs, however, will be repaid several times over as healthyand vital temporary communities enable residents to recover and move back intothe larger community more quickly.

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Types of Mass-Produced Housing All of the following housing types have a number of features in common:

o They are mass produced, allowing foreconomies of scale that decrease overallconstruction costs.

o They are typically less expensive thanstick-built homes of similar quality.

o Proper installation and assembly usu-ally require some assistance from build-ing experts such as architects, generalcontractors, plumbers, or carpenters.

o The home’s legal status (whether it ispersonal or real property) depends onwhether it is affixed to the land.

Prefabricated (“prefab”) homes are

assembled on site from manufactured

components. The components are shipped

to the site as a kit and are assembled by

a general contractor, sometimes with the

help of an architect. The components

may be generally available or may be

manufactured specifically for the project.

Modular homes arrive at the site in a

number of box forms that require limited

assembly. The modules are constructed

off site, usually in an indoor manufactur-

ing facility. An on-site general contractor

oversees the construction of the founda-

tion and the assembly of the modules.

Modular homes usually require the addi-

tion of plumbing, heating, ventilating,

and air conditioning; windows, roofing,

or siding may also be needed.

Container homes are box-shaped modularhomes manufactured from InternationalStandards Organization (ISO) standard-sized containers and are typically outfit-ted with prefabricated components. Thesehomes are often used as temporary hous-ing for disaster victims. Recently, severallarge builders have experimented withusing container modules for temporaryoffices and as workforce housing.

Manufactured housing is completedentirely in a manufacturing facility.These homes arrive at the site in turnkeycondition and require only utility hookup.

Mobile homes are a type of manufacturedhousing often known as trailers. Someare wheeled, but most are designed to besemipermanent. Because mobile homesare typically not affixed to the land, theyare usually defined as personal property.

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Principles for Temporary Communities

Don’t Be Ruled by Expediency

Be Sensitive to the Surrounding Area

Foster Livability

Provide Transportation Linkages

Integrate a Variety of Housing Types

Keep People Safe

Create a Sense of Responsibility

Devise an Exit Strategy

11Don’t Be Ruled by Expediency

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The economic and social consequences that played out in New Orleans andthe Gulf states after hurricanes Katrina and Rita hit in 2005 make it clear

that planning for temporary communities can lead to much quicker recovery anda better outlook for the long term. Both natural and manmade disasters willcontinue to occur. To ignore or deny the possibility of future disasters meansgoing back to square one and attempting to handle disasters without the plan-ning that could ensure survival. Failure to prepare means that when the crisiscomes, decisions will be made on the fly: in other words, the big picture—social, economic, and environmental viability—will be overshadowed by theproblems of the moment.

Plan Before the Need Arises

Do not be caught unprepared. Potential sites for temporary communities can beidentified before disaster strikes. Community designs can be prepared in advance,so that they can be pulled off the shelf and implemented immediately. The plansshould incorporate all the principles enumerated in this document.

Establish Connections to Existing Public Services

When the time comes, the temporary community will need the full range of pub-lic services: police, fire protection, social services, schools, and so on. To ensure

that the temporary community is linked to existing publicservices, and to ensure that plans reflect the expectationsof the existing community, representatives from both theservice agencies and the community at large must be partof the planning process. One option is to create communitygroups to help the various service agencies plan for disas-ters. This approach helps ensure that when a disaster occurs,both the citizens and the agencies will understand what isnecessary to deliver public services.

When the Time Comes, Stick to Your Guns

When a disaster strikes, don’t let your plans be brushedaside by those who have different priorities or who arethemselves being ruled by expediency. Insist that the plansbe implemented just as you have prepared them—allowing,where appropriate, for practical adjustment.

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Plan for RecurringNeedsWhere disasters are likely to recur,regional plans for temporary emer-gency housing should be developed.If public lands such as municipalparks, playing fields, or fairgroundsare to be used, then it is desirable toplan the temporary housing locationsso that the infrastructure can bereused in future disasters. In the case of fairgrounds, one option is to install infrastructure that can beused year-round for event-based parking of recreational vehicles. This arrangement would provide anincome source for the community,and would ensure that infrastructureis in place should it be required.

When a new permanent development is created, it is essential to considerits impact on the existing community. The same is true of a temporary

community. Although the transience of a temporary community reduces its long-term impact on the existing community, several aspects of temporary communi-ties—including higher density, the effect on public infrastructure, and the factthat the housing may be manufactured or prefabricated—may have significantshort-term implications for the surrounding community. Support for those inneed of temporary housing should be the primary goal, but planners of tempo-rary communities must also minimize disruption for the permanent residents ofadjacent neighborhoods.

The construction ofthe temporary com-munity should alsoreflect concern forthe environment ofthe receiving com-munity. For example,additional infrastruc-ture created for thetemporary commu-nity should be asenvironmentally sen-sitive as possible.Care should be takenlimit the amount ofimpervious surfacesand to protect (and,wherever possible,enhance) greenspace.

Integrate the Community into the Existing Neighborhoods

To the extent possible, temporary communities must be physically and function-ally integrated into the surrounding area. Residents of adjacent neighborhoodsmay fear increases in crime, noise, lighting, and traffic congestion. Effectivecommunication is vital to alleviating such concerns. For example, plannersshould provide statistics from temporary communities that are similar to theplanned community in order to separate misinformation from legitimate con-

22Be Sensitive to the Surrounding Area

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cerns. Public meetings offer a good forum to discuss plans for temporary com-munities and to help displaced residents, planners, and nearby residents under-stand each others’ needs and concerns. These meetings also offer an opportunityto correct misinformation and to address legitimate issues.

It is important to obtain input from permanent residents so that the plans for the temporary community reflect both their concerns and the needs of dis-placed citizens. Best practices that can successfully address community concernsinclude the screening of views, a sensitive lighting plan, meticulous propertymanagement, an effort to limit permanent environmental impacts, and a plan forrestoring the property to its previous condition. For example, lighting that maystrengthen security in the temporary community should be designed so as to notto disturb neighboring properties; similarly, temporary bus stops or bus sheltersshould be positioned so as not to impede traffic flow or damage existing road-ways. If appropriate, the bus service may be integrated into the existing commu-nity, providing service to both the permanent and temporary communities.

Create Smaller Communities and Avoid ConcentratingThem in One Area

In comparison to large temporary communities, smaller ones are easier todevelop and manage and have less impact on the surrounding area. Residents of temporary communities have been through a traumatic experience and facestressful life decisions. Concentrating many such residents in large temporarycommunities risks magnifying the sense of desperation that many of the resi-dents likely feel.

The lessons of the high-density, public-housing projects of the mid-20th centuryshould not be lost on the planners of temporary communities: large concentra-tions of distressed people may create the conditions for desperate acts. Integrat-ing smaller temporary communities into established neighborhoods, in contrast,provides a stronger sense of normalcy and community to residents who are seek-ing stability and a return to what was familiar in their previous lives.

A good rule of thumb is that the population of a temporary community shouldnot exceed 5 percent of the population of the receiving community. Thus, anestablished community of 10,000 households should not receive more than 500temporary homes—and, if possible, the homes should be dispersed in clustersthroughout the community, rather than concentrated in one large area.

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Determine the Best Useof the LandMake an assessment of the landunderlying the proposed temporaryhousing site. Determine the intendedor best final use of the land, anddesign the temporary site accord-ingly. For example, if the final use ofthe land is residential, then the infra-structure should be designed andinstalled in such a way that it will beavailable for future permanent hous-ing. (It is not necessary to provide all the infrastructure needed for permanent development, but what is installed should be viable for futuredevelopment.)

In a time of immediate crisis, when many people have been driven from theirhomes and have nowhere to go, it is important to focus on the absolute

necessities: food, shelter, water, sanitation, and health care. But when largegroups of people are brought together for longer periods, additional needs must be accommodated, both for the overall health of the community and forthe well-being of the people within it. It is only when these other needs areaddressed that a genuine community can be formed—one that will protectagainst the sense of hopelessness that arises when people feel alienated andalone. Remember that the temporary community is being planned for people: it

is not an exercise indesigning and engi-neering infrastructure.The infrastructure isimportant, but its roleis to serve the peopleof the community.People must not bemade to adapt topoorly designed infrastructure.

Creating a neighbor-hood is critical tobuilding community.Among the elementsthat can strengthenthe sense of neigh-borhood and connec-tion are high-qualitydesign, recreationalopportunities, andgathering places.

Good design principleswill help build commu-nity. As noted earlier,design should not besacrificed to expedi-ency. This means thatwhenever possible,

33Encourage Community Livability

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The community of Ville PlácidoDomingo, Acapulco,Mexico, provided apleasant, securehome for families dis-placed by the 1997devastation of Hurri-can Pauline.

Transitional NeighborhoodsThe Federal Emergency ManagementAgency (FEMA) will provide hundreds ofmillions of dollars to create temporaryhousing for people who were displacedby hurricanes Katrina and Rita. Becausethe current model used to develop tem-porary housing does not contribute—structurally or financially—to the cre-ation of longer-term solutions, FEMA’sJoint Housing Solutions Center hasdevised a strategy for transforming temporary housing into permanent new neighborhoods that will be built and supported by public/private part-nerships. These transitional neighbor-hoods will be designed to grow into permanent, sustainable, mixed-use,mixed-income neighborhoods that will be an integral part of the com-munities in which they are located.

Transitional neighborhoods will havethree key components:

1. Reusable infrastructure.Infrastructure will be designedand installed so that it can bereused in the development offuture permanent housing onthe same site.

2. Smart growth design princi-ples. Transitional neighbor-hoods will begin as mobile

home developments, with each mobilehome placed on a lot large enough toaccommodate a permanent residentialstructure. Between 18 and 24 monthsafter its founding, each development willtransition to permanent housing; part ofthat transition will involve the integra-tion of mixed-use and mixed-incomestructures. Transitional neighborhoodswill be pedestrian-friendly and will belocated near shopping, recreation, trans-portation, employment, and schools. Thedesign and placement of buildings willtake into account local architecturalstyles and the protection of naturalresources. The public realm will bedesigned to stimulate social interactionand civic participation, creating “a senseof place” and an environment where people from diverse backgrounds andincome levels can come together in anatmosphere of acceptance. Transitionalneighborhoods will provide the opportu-nity—and the support—to allow displacedpeople to move from temporary to

permanent housing within a single neighborhood.

3. Support services. The design of transi-tional neighborhoods will allocate spacefor the kinds of support services that displaced people need. The neighbor-hood’s mixed-use design will accommo-date a broad range of services andamenities. As the development transi-tions from temporary to permanent housing, the allocated space will con-tinue to support ongoing services, activities, and businesses.

Through the use of financial incentivesand the provision of valuable infrastruc-ture improvements for future housingneeds, well-designed, well-planned transi-tional neighborhoods will be desirableassets for any community. These incen-tives and amenities are intended to stim-ulate community acceptance of the proj-ect, which will both expedite the provisionof temporary housing and lay the founda-tion for longer-term housing solutions.

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Temporary housing. . .

becomes a permanent neighborhood.

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careful thought should go into the creation of both the overall plan and theindividual structures. The temporary community is a place for people to live;respect for that purpose requires attention to detail.

Recreation also fosters a sense of community. Space should be provided for parksand playgrounds when none are otherwise available within a quarter-mile.

Remember that temporary housing has limited space. An indoor community center—with a kitchen, a lending library, Internet access, and meeting space—

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Going Home, Inc.Going Home, Inc., a new nonprofit organ-ization, has developed an innovativeapproach to postdisaster housing. Twoelements make the approach unique:first, Going Home dwellings are tempo-rary residences that can be transformedinto permanent homes. Second, theapproach focuses on quickly reestablish-ing everyday community life. Accordingto founder Reena Racki, “The idea is touse new materials and site plans, and toincorporate familiar elements associatedwith home and neighborhood.”

The Going Home Cottage is made up of individual modules, each of whichmeasures 12 feet by 12 feet. The firstmodule, which can serve as a temporarydwelling for one or two people, has asmall kitchen and a bathroom on oneside and an eating and sitting area with a

bunk bed on the other. A ten-foot ceilingmakes the small space feel roomier. A12-foot by six-foot porch attaches to thefront of the module. Each module is con-structed of factory-made lightweightpanels and roof trusses that are flatpacked, shipped, and assembled on site,on contractor-made foundations. Themodules incorporate design features thatprotect the homes from bad weather.

Each household can add modules asneeded, and completed homes caninclude as many as ten modules—a totalof 1,440 square feet. In their final form,the homes will vary according to size,color, roof style (shed, gable, or pyra-mid), and configuration of modules.

The Going Home Villages concept offersan opportunity to create entirely newcommunities in areas that have beenlargely destroyed. Plans call for thehomes to be close to the street, with

zero lot lines and small backyards. Prop-erty boundaries would be marked by pri-vacy fences, a feature that is importantto reestablishing a sense of normal com-munity but is missing from most emer-gency housing. Initial planning could alsoprovide for community buildings, such aschapels, meeting facilities, child carefacilities, and play areas. A pilot commu-nity might include 25 to 50 homes.

Going Home, Inc., has copyrighted thecore house design and the village con-cept and will license them to othergroups. Licensing fees will help financefurther research, design, and prototypedevelopment. Going Home is seekingpartners to implement pilot projects inthe Mississippi Gulf.

Source: Adapted from Ronald O’Rourke,“An Innovative Approach to Post-KatrinaReplacement Homes,” ArchitectureDC 7,no. 4 (Winter 2005–2006).

Going Home village.

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will not only provide extra room but also make it possible for neighbors to meetand to make friends. To jump-start a sense of community among people whomay feel dispirited from their tumultuous journey, the community center shouldinclude programming such as after-school activities, recreational opportunities,adult education, and cultural events. Space should also be provided for religiousactivities, and arrangements should be made for clerics of various faiths to visitand attend to the spiritual needs of the community.

Service retail—such as a laundry, a dry cleaner, and a small market or a conven-ience store—also enhances the sense of being in a neighborhood. If such serv-ices are not readily available in the surrounding community, provision should bemade to bring these amenities to the temporary community.

Finally, remember that evacuees are not all alike: they have different origins and different needs, and they all deserve to be treated with dignity and respect.Determine if the people in a temporary community have specific needs; then try to meet them. Whenever possible, let people make choices so that they feelthey have control over their lives. Allow people to settle as close to their homesas possible.

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The temporary community will not prosper if it is isolated from the surround-ing community. Strong transportation linkages will make residents feel more

comfortable about moving about within the temporary community and betweentheir community and the surrounding area. If appropriate, the transportationlinkages may be integrated into the existing community, providing service toboth the permanent and temporary communities. Walkways, streets, roads, andpublic transportation should facilitate easy access to jobs, schools, shopping,and entertainment. Well-planned connections also improve access for emergencyvehicles, allowing alternate routes when necessary. Residents of the temporarycommunity who lack private transportation will need effective public transporta-tion; they should not be left to fend for themselves.

A number of means can be used to achieve strong transportation linkages:

o Road layouts and circulation patterns that connect to the surrounding community;

o Shuttle bus service;

o Strategically located parking areas and sidewalks;

o Street names, signage, and way-finding that facilitate movement within thedevelopment and between the development and the surrounding areas;

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44Provide Transportation Linkages

Attractive pedestrianwalkways provideimportant transporta-tion linkages.

o Carefully planned pedestrian linkages;

o Open space within the temporary community—and, where possible, connec-tions to open space beyond the temporary community; and

o Attractive uses, such as farmers’ markets, recreational opportunities, or abusiness incubator.

Strong transportation linkages will allow the temporary community to gainstature and take shape as a real place. The essence of community is humanconnection, and a sense of belonging to an identifiable place with an active,effective public realm.

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Displaced households come in all shapes and sizes,each with different housing needs: singles, couples

with or without children, extended families, and seniors, toname but a few. The most important goal is to keep familystructures intact. People who have experienced a disasterare seeking a stable environment and a return to normalcy.By keeping families together, a temporary development canhelp to restore the psychological well-being of its residents.Planning for temporary communities that takes intoaccount the full range and variety of needs can providemuch-needed stability during a tumultuous period.

To address both the specific requirements and the fluctuat-ing needs of residents, it is best to provide a range ofhousing configurations—from single-room occupancy tothree- and even four-bedroom units, as well housingoptions (usually modular) that can be combined or brokendown as necessary. By analyzing the neighborhoods inwhich displaced residents originated, planners may be ableto anticipate the needed housing configurations. As a basisfor this analysis, data from recent census or housing reportscan be combined with reports on the affected areas.

Provide High-Quality Design

Limited budgets and size constraints are no excuse for poor design. There arenumerous examples throughout the country of small-scale housing units that useinnovative design, materials, and construction techniques and achieve low cost.Good design takes into account privacy, safety, comfort, and economy. Otherconsiderations, such as accessibility, may be important as well. In addition toelderly residents whose ability to navigate stairs is limited, or who need aground-level home to facilitate wheelchair access, the temporary community mayinclude people who are similarly restricted by temporary disabilities resultingfrom the disaster. The planning process should take into account not only howdesign decisions address housing accessibility, but also how good design canhelp meet the needs of all displaced residents.

Prefabricated and modular housing products can generally take on a variety offorms. In deciding which forms to select, planners should attend to the specificneeds of the temporary community. Architectural services can be helpful in tai-loring modular units to address the majority of the community’s needs.

55Integrate a Variety of Housing Types

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Take Climate into Account

Disasters can happen anywhere and atany time. Even disturbances such ashurricanes and tornadoes, which have a set season, may have a “window” offive months in which they may occur.Thus, for example, the climate after ahurricane can range from the heat ofJune to the chill of November. Tempo-rary communities should reflect the cli-mate in which they will be located.

Effective and energy-efficient air condi-tioning and/or heating should be partof the planning process for any tempo-rary community. To maximize the loca-tion’s natural benefits and minimize itsdeficiencies, design should take into account siting and topography. In warmerclimates, for example, morning and evening shade should be maximized toreduce cooling costs; in cooler climates, morning and even shade should beavoided to reduce heating costs. Warmer climates may require manmade shade.Existing vegetation may be incorporated into the design to block wind, createshade, and enhance privacy.

Going Home cottage(see page 8).

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Provide Private OutdoorSpace

Where possible, planners should incor-porate private outdoor space into tem-porary communities. A patio, a garden,or a lawn can provide important mentalhealth benefits to residents who havebeen traumatized by disaster. Often,these areas are the only spaces whereresidents can relax and enjoy solitude.By creating private outdoor areas, plan-ners provide residents with the oppor-tunity to engage in healthy activitiessuch as planting private gardens, whichalso beautify the community. In thisway, private outdoor space can help tocreate a sense of calm in the community.

Strive for Demographic Diversity

The residents of temporary communities often wonder why they were the vic-tims of disaster. Many suffer from depression; some may have a pervasive sensethat life is unfair. Ensuring that a temporary community is racially and socio-economically diverse can create a sense of shared sacrifice among residents—which in turn, can strengthen their feeling that, at least within the temporarycommunity, fairness does exist.

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The perception of fairness is essentialfor the functioning of the new commu-nity. As noted earlier, residents of tem-porary communities should be housedas close to their former neighborhoodsas possible. In addition, householdsfrom different demographic groupsshould be distributed evenly, to helpto prevent the community from becom-ing polarized along racial or socioeco-nomic lines. A housing lottery is oneway to avoid the perception of unfair-ness in the distribution of housing. A“first come, first served” waiting listfor specific types of housing will alsohelp to alleviate any concern aboutinequities in housing allocation. Lot-teries and waiting lists are but twoamong many means of ensuring thatone demographic group is not favoredover another.

While attempting to create a commu-nity that is blind to race and class,planners should remember that otherfactors may have some impact on where households are located within a devel-opment. For example, older residents may need accessible units that are close topublic transportation. Similarly, a family with children may view location near aplayground as an asset, while a childless couple may view it as a liability. Ahousehold with a car may view a location near the parking lot as a convenienceand a location near a bus stop as an annoyance, while the reverse may be truefor a household without an automobile. Another consideration might be proxim-ity to child care or to daycare facilities for seniors. Planners must strike a bal-ance between avoiding any impression of inequity in the distribution of housingand matching residents to appropriate housing.

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Two levels of safety need to be managedin a temporary community: the first is

actual physical safety, which comes fromgood design, adequate lighting, eyes on the street, security patrols, neighborhoodwatch, and so on; the second is the percep-tion of safety, which comes from good land-scaping, regular trash collection, carefulmaintenance, and other practices that indi-cate a caring and respectful community.

The concept of “defensible space” is a use-ful one for temporary communities. Defensi-ble space is a gradation of space from thepurely private to the purely public. Insidethe home, for example, is obviously purelyprivate space. The front porch, however, is

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less private and has some flavor of the public realm.Although the sidewalk in front of the home is clearly a pub-lic space, the residents of the home feel some ownershipand responsibility for this space. The street itself is morepublic still, but the people on the block feel a specialattachment, concern, and responsibility for that streetabove others. Defensible space makes communities safer, in that residents feel a shared sense of responsibility forvarious public spaces and for watching and maintainingthose spaces.

The perception of safety must, of course, be supported byactual safety measures that deter illegal activity and ensurethat offenders are prosecuted. The combination of safetymeasures and the perception of safety reinforces the senseof community and encourages residents to engage in per-sonal efforts to protect and enhance safety.

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Because temporary communities may exist for a year or even longer, creatinga civic identity and a sense of community responsibility is important to

reestablish a sense of normalcy and stability for displaced residents. Numerousstudies have shown that strong communities—those that have a sense of prideand ownership—are cleaner and have lower crime rates. This implies that peopleare more likely to tend to things they feel invested in; as the saying goes, “Youdon’t wash a rental car.” Nevertheless, it is possible to encourage commitmenteven where homes are not owned. Many rental communities, for example, have astrong sense of unity and community pride.

Most residents of temporary communities have a shared mission: their immediategoal is to put back together the critical pieces of their lives. And most hope,eventually, to move back to their former community or to a new home. Residentsof temporary communities have undergone similar tragic experiences and areseeking information and help. Such commonalities are a foundation on which astrong sense of ownership and pride can be built. That sense of ownership canbe fostered through several key actions during the planning and implementationphases of developing temporary communities.

Create a Civic Identity

It’s hard to feel a sense of community ownership and pride when your address isTrailer 126, Sector 4, Road B. Naming a community, its places, and its streetscan create a civic identity. Names may have local significance, or they may be

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77Create a Sense of Responsibility

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related to the disaster-affected area, or they may remind residents of commoncultural threads.

Even more important is the creation of a governing body, along the lines of acommunity association or a homeowners’ association, both to create a sense of community and to provide needed services. Members of the governing bodywould make decisions about the daily management of the community and addresscomplaints. The governing body could have subcommittees—a community watchgroup, a landscaping group, or a transportation group, for example—to provideor manage community services.

As noted earlier, temporary community facilities are also important; these may bemanaged by one of the subcommittees of the community association. Examples ofsuch facilities could include a cafeteria, a space for religious practice, and a healthcare facility. It is important, however, to ensure that such facilities remain tem-porary, so as not to encourage permanent residence at the temporary site.

Finally, opportunities to work together, through public and private partnerships,should be made available to the entire community. Community organizations canhelp focus people on shared values and create safe and stable temporary homes.

Provide Job Training, Adult Education, and Access toTemporary Employment

Natural disasters often disrupt the economy of a region. In some cases, employ-ers may decide that they can no longer survive in the market, and jobs will bepermanently lost. At the same time, new employment opportunities may be cre-ated during the rebuilding effort. In addition, the region’s employment base mayundergo restructuring in response to changed demographics, with new industriesreplacing older ones.

Some displaced residents may find that their skills have been rendered obsolete.Others may already have been retired, or may lack the skills needed for gainfulemployment. Many of these residents may need help finding employment tomeet needs that have arisen unexpectedly because of the disaster.

Temporary communities can provide an opportunity for displaced residents to getthe education or job training they need to get back on their feet. The communityassociation can work to match job training and adult education courses to employ-ment opportunities within the community. It can also act as a clearinghouse,assisting residents who already have marketable skills to find temporary employ-ment and encouraging residents to find jobs that will aid in the recovery effort.

It is beneficial to offer educational sessions on planning, reclamation, andrebuilding practices and procedures that are being used on homes and neighbor-hoods hit by disaster. Keeping displaced residents informed about the variousstages of physical recovery in their permanent neighborhood makes them morelikely to feel invested in the outcome.

Provide Child Care and After-School Programs

Child care and after-school programs enable parents to go back to work andbegin rebuilding their lives. Such programs can also provide temporary employ-ment for child care providers in the community. Not having child care creates aCatch-22 for many parents: they need income to support their families, but theycan’t work because they have children who need their daily care. Getting parentsback to work and creating a safe place for children provides families with asense of routine, and with the hope that they will soon be able to move to amore permanent housing situation.

Set Aside Space for a Business Incubator

As noted earlier, disasters create regional economic disruption. Often, a disastercauses immediate, if temporary, changes in the needs of the area population—and, therefore, in the products and services that will be required. Basic needs ina postdisaster community might include building supplies, cleaning supplies and

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services, replacement equipment, debris removal, and other products and serv-ices that were not priorities before the disaster.

Temporary communities provide an opportunity to incubate new businesses thatmay arise as a direct result of the changed economic environment. Space shouldbe set aside to encourage entrepreneurial activity among the residents. Whoknows the needs of disaster-stricken residents better than the residents them-selves? Economic development is required before a community can resurface.New business opportunities will create jobs, prompting new housing and retailfor the workers. Restoring the employment base is the first step toward recovery.

Just as planning is important for the creation of temporary communities, itis equally important for their eventual closure. A well-designed exit strategy

provides housing placement services for displaced residents and establishes clearbenchmarks to indicate progress toward the final closing. It is important, how-ever, not to underestimate how long the temporary facilities may be used. Insome cases, lengthy tenure may be necessary.

Part of the exit strategy is to develop a plan for restoring the site and returningit to an appropriate use, whether the original use or a new one. Once a site hasbeen used for a temporary community, it may be better suited to another pur-pose than to its original one. If that is the case, plan the exit strategy to bedirected toward the new use. If not, think through how the site will be restoredto its original use.

In any case, it is essential to prevent or minimize long-term environmentalimpacts. Here are some examples of the types of impacts to expect:

o Soil compaction (from automobile use, foot traffic, and other uses);

o Soil contamination (from automotive fluids and other toxic materials);

o Erosion and sedimentation (from inadequate stormwater control and loss ofvegetative ground cover); and

o Stream degradation (contamination from stormwater runoff; stream bank ero-sion from excessive stormwater flows; siltation of stream beds; loss of aquaticdiversity from combined impacts).

Protect natural systems by paying close attention to the site’s characteristics andresources: hydrology, terrain, geology, ecology, wildlife, and vegetation. Disturbthe environment as little as possible; to preserve native vegetation, use naturaldrainage for stormwater. Careful planning for an exit strategy will make the finalrestoration of temporary community sites easier and more comprehensive.

88Devise an Exit Strategy

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$ULI–the Urban Land Institute1025 Thomas Jefferson Street, N.W.Suite 500 WestWashington, D.C. 20007-5201www.uli.org

ULI Order #T32, Packet of Ten BookletsULI Order #T33, Single Copy

ISBN 978-0-87420-957-0

You Will Learn to:

n Plan in advance for temporary shelter;

n Minimize disruption to surroundingneighborhoods;

n Make temporary communities saferand more attractive;

n Provide transportation options;

n Offer housing that meets the needs ofa variety of family sizes and types;

n Create a sense of community responsibility; and

n Devise a strategy for closing the community.

Give a copy of thispublication to others. Buy a packet of ten booklets for just$19.95! Call 800-321-5011 to order,or order online atwww.uli.org/bookstore.

More Ten Principles titles fromthe Urban Land Institute

Ten Principles forSuccessfulPublic/PrivatePartnerships

Ten Principles forSmart Growth onthe SuburbanFringe

Ten Principles forSuccessfulDevelopmentAround Transit

Ten Principles forRebuildingNeighborhoodRetail

Ten Principles forReinventingAmerica’sSuburban Strips

Principles forTemporaryCommunitiesJohn K. McIlwain, Alexa Bach, Mary BethCorrigan, Richard Haughey, PremaKatari, George J. Kelly, MichaelPawlukiewicz

The effects of hurricanes Katrina and Ritain 2005 have made it clear how critical itis to have a plan of action in place—before disaster strikes. Whether natural—such hurricanes, floods, tornados, orearthquakes—or manmade, all disasterscan wreak havoc in your community andleave survivors homeless for days,months, even years.

Based on ULI’s extensive experience indocumenting how communities are built,this booklet will help you develop anadvance plan for temporary shelter thatwill assist evacuees during a crisis, andget them back on their feet with duespeed in the days that follow.