a disaster in the making

7/27/2019 A Disaster in the Making

1/33www.americanprogress.o

A Disaster in the MakingAddressing the Vulnerability o Low-Income

Communities to Extreme Weather

By Tracey Ross August 2013


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A Disaster in the MakingAddressing the Vulnerability o Low-Income

Communities to Extreme Weather

By Tracey Ross August 2013


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1 Introduction and summary

4 Underlying eects o poverty

6 The impact o poor-quality housing

10 Environmental actors

14 Economic stability

17 Improve resiliency and recovery

in low-income communities

25 Conclusion

27 Endnotes

Contents


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1 Cee Ameca Pgess | A Dsase e Mag

Introduction and summary

On Ocober 29, 2012, Supersorm Sandy hi he norheasern Unied Saes

and became he deadlies and larges Alanic hurricane o he year and he

second coslies in U.S. hisory aer Hurricane Karina.1 Heeding he lessons

ha emerged rom he blundered response o Karina in New Orleans in 2005,

he ederal governmen was quick o reac o Sandy wih Federal Emergency

Managemen Agency, or FEMA, ocials arriving hroughou he region and

Presiden Barack Obama surveying he damage rom he ground.

Despie he quick response, however, many low-income residens o he region

coninued o ace dire circumsances. Many low-income elderly and disabled resi-

dens o New York Ciys public housing complexes were sranded in heir apar-

mens or weeks aer he sorm due o elevaor ouages. Oher residens remained

in he high rises, despie having no hea or power, because hey had nowhere else

o go or no means o geting ou o heir neighborhood.2 In oher pars o he

region, low-income people were unable o make i o ood samp ceners or assis-

ance.3 Te esimaed cos o he desrucion wrough by Sandy was $65 billion,4

wih low-income households grealy impaced.5

Exreme weaher is on he rise, and so-called sorms o he cenury are par o

he new normal. According o he Naional Climae Assessmen dra, auhored by

250 o he naions op scieniss, academics, and business leaders:

Climae change is already aecing he American people. Cerain ypes o

weaher evens have become more equen and/or inense, including hea waves,

heavy downpours, and, in some regions, oods and droughs.6

According o a recen Cener or American Progress column iled Going oExremes: Te $188 Billion Price ag rom Climae-Relaed Exreme Weaher

he mos damaging exreme weaher o 2011 and 2012 ook approximaely 1,107

lives and caused up o $188 billion worh o damage.7 While many describe

sorms and oher exreme weaher as social equalizers ha do no diereni-

ae based on ehniciy, race, or class, he ruh is ha hese evens exacerbae our


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underlying economic inequiies. In ac, a CAP repor iled Heavy Weaher:

How Climae Desrucion Harms Middle- and Lower-Income Americans

explains ha mos o hese ypes o evens disproporionaely harmed middle-

and lower-income Americans. Tese households have ewer resources o prepare

or and recover rom such disasers.8

Povery and exreme weaher have collided in many recen weaher-relaed evens.

Exreme weahersuch as las years record-breaking emperaures across he

counry and widespread ooding rom Iowa o Mississippi in 2011exposes

he neglec and underinvesmen ha low-income communiies experience

year round rom subsandard housing o ewer economic opporuniies, o poor

inrasrucure, o exposure o hazardous wase. I is no unil aer he dus setles

rom a disaser ha we begin o discuss how o beter serve hese vulnerable com-

muniies. As he paricular weaher-relaed even begins o recede in he headlines,

however, he conversaion unorunaely oen apers o as well.

Policymakers are beginning o recognize ha resilience o exreme weaher and

climae change helps keep communiies sae and is a more cos-eecive sraegy

o addressing hese disasers han sraegies ha solely ocus on recovery. Te

presidens recen Climae Acion Plan deails eors o prepare he naion or

he impacs o climae change and more requen exreme weaher and presens

an opporuniy o consider how o bes serve low-income communiies. As

Universiy o San Francisco Proessor Alice Kaswan saed in her recen aricle

iled Seven Principles or Equiable Adapaion:

Vulnerable populaions will be a much greaer risk om climae change unless

climae change adapaion policies grapple wih he underlying socioeconomic

inequiies ha exacerbae heir vulnerabiliy. Decreasing social vulnerabiliy

requires adapaion measures ha boh reduce he underlying sensiiviy o harm

and enhance impaced communiies resilience o harm aer i has occurred.9

While i is impossible o predic all he ways an exreme weaher even can disrup

a communiy, many o our disaser-resilience and recovery policies do no even

accoun or he ongoing vulnerabiliies ha low-income households experience.

Sudies show ha low-income people are paricularly vulnerable o exremeweaher evens due o heir poor housing qualiy, poor environmenal condiions,

and economic insabiliy.10 In order o address heir underlying vulnerabiliy, he

ollowing recommendaions, which are deailed a he end o his repor, can help

he ederal governmen srenghen he local response beore and aer exreme

weaher evens srike.


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Srenghen and increase aordable housing

Foser social inrasrucure by building relaionships beween public- and

aordable-housing residens and communiy leaders by supporing disaser-

relie plans and providing echnical assisance o communiy-based organiza-

ions o increase response capaciy. Srenghen he qualiy o aordable housing by increasing pre-disaser

aordable-housing invesmens and increasing he Low Income Housing ax

Credi, or LIHC, o disaser areas wih a signican loss o such housing. Srenghen he Communiy Developmen Block Grans Disaser Recovery, or

CDBG-DR, program by ensuring air disribuion o suppor o low-income

communiies.

Address environmenal acors

Proec households agains exreme emperaures by ully unding he Low-Income Home Energy Assisance Program, or LIHEAP, and promoing green

space in low-income neighborhoods. Rehabiliae ood-conrol inrasrucure by invesing $1 billion annually

o repair crumbling dams and levees and ensure he aordabiliy o ood

insurance. Develop air plans or pos-disaser debris removal.

Enhance economic sabiliy

Proec he Supplemenal Nuriion Assisance Program, or SNAP, o ensure

he availabiliy o Disaser SNAP, or D-SNAP, ood assisance. Increase unemploymen insurance and disaser unemploymen assisance and

exend he bene periods.

Les ake a closer look a how povery exacerbaes he consequences o exreme

weaher evens.


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Underlying eects o poverty

By 2011, 46.2 million Americansnearly one in six peoplewere living in

povery. oday, millions o households are aeced as people cycle in and ou o

povery. Longiudinal daa rom a recen CAP repor iled Te Righ Choices o

Cu Povery and Resore Shared Prosperiy shows ha over a our-year period,

one in hree Americans will experience a spell o povery.11 Povery raes are even

higher among dieren demographic groups. In 2011 more han one-quarer o

young children25.1 percenwere living in povery, including more han 40

percen o young Arican American children and more han one-hird o youngHispanic children.12

Tis rise in povery can be atribued in large

par o he prolieraion o low-wage jobs ha

do no pay enough o suppor a amily,13 as well

as a rise in he combined cos o housing and

ransporaion.14 Furhermore, hose living

in povery are more likely o live in neighbor-

hoods wih poor housing qualiy and ailing

inrasrucure, o have poor healh oucomes, o

lack homeowner or rener insurance, and o ace

ood and housing insecuriy.15 When amilies

lack economic securiy, an unoreseen crisis

ha causes nancial hardship can jeopardize he

abiliy o parens o pay he bills, pu ood on he

able, and aord necessiies such as child care or

medical expenses.16 When ha crisis is a naural

disaser, amilies on he brink can be driven

deeper ino povery as everyhing hey workedor is los, and heir hopes o enering he middle

Rising inequality

Top 20 percent sees income gains in 2011 while incomes all

or stagnate or low- and middle-income amilies

-2%

-1%

0%

1%

2%

3%

4%

5%

6%

Lowestquintile

Secondquintile

Middlequintile

Fourthquintile

Highestquintile

Top fivepercent

0%

-1.6%-1.9%

-1.6%

1.6%

5.3%

Source: U.S. Cencus Bureau Income, Poverty, and Health I nsurance Coverage in the United States: 2

http://www.census.gov/prod/2012pubs/p60-243.pd.


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class are delayed or vanish. According o a CAP repor, low-income people are

more likely o ge hi by exreme weaher, as he majoriy o counies slammed wih

muliple exreme weaher evens over he pas ew years were home o middle- and

lower-income households.17 Wih exreme weaher evens on he rise, low-income

amilies are a a greaer risk han ever beore. Disaser aid, while essenial, canno

eradicae he damages ha severe weaher delivers o he lives and livelihoods olow-income Americans.


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The impact o poor-quality housing

Growth in worst-case housing needsrom 2001 through 2011

Renters with worst-case needs (1,000)

Source: HUD PD&R tabulations o American Housing Survey

6,000

8,000

5,000

7,000

9,000

2001 2003 2005 2007 2009 2

One o he primary reasons ha low-income people are disproporionaely

aeced by exreme weaher is due o he qualiy o heir housing. Shoddy

consrucion and he age o aordable housinggenerally in less-han-desirable

neighborhoods ha lack qualiy services and are suppored by subopimal inra-

srucurepus low-income people a greaer risk rom he eecs o exreme

weaher.18 Despie his realiy, we canno simply move millions o people o

new and beter buildings and neighborhoods. Tere is currenly a shorage o

more han 5 million aordable-housing unis or low-income amilies across hecounry. Furhermore, only one in our amilies ha quali y or ederal housing

assisance currenly receives i,19 and nearly wo-hirds o exremely low-income

reners spend 50 percen or more o heir

incomes on housing.20 Maters will only ge

worse as ederal housing-assisance unding

is expeced o decline in he years ahead.21 As

a resul, many low-income amilies rely on

subsandard housing, including approximaely

7 million low- and moderae-income amilies

who live in manuacured homes or mobile

homes.22 Tis is o paricular concern as people

living in mobile homes accoun or hal o all

ornado deahs.23 Tese wors-case housing

needs have seadily been on he rise over he

pas decade.24

Immediaely aer Supersorm Sandy hi, i was

repored ha even aer much o New York Ciy

reurned o normal, many o he ciys low-income elderly and disabled residenswere ound sranded in New Yorks public housing owers due o power ailures

ha caused elevaor ouages. As a resul, he ciy relied on ad-hoc eams o volun-

eers o care or he rapped residens. Bu here were no plans in place on how o


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work wih ouside organizaions or voluneers; here were no sandby conracs o

secure pumps and generaors or he public housing buildings; here was no up-o-

dae assessmen o elecrical-sysem needs o even ideniy wha ype o genera-

or a building could use.25 Te age and qualiy o he housing sock hindered he

response o he disaser.

According o he Furman Cener or Real Esae and Urban Policy, 55 percen o

he sorm-surge vicims in New York Ciy were very-low-income reners, whose

incomes averaged $18,000 per year. Max Weselcouch, he ceners daa manager,

explained ha hese households were vulnerable beore he sorm, and programs

o assis hem will need o ake heir need or aordable housing ino accoun in

order or hem o ully recover rom he sorms damage. Beore he sorm, only

22 percen o renal unis in New York Ciy were aordable o households making

less han $30,000.26

The second disaster : Long-term recovery

Housing coninues o be a significan issue or people o color and low-income

disaser vicims in he recovery period, which some researchers have ermed he

second disaser.27 Analyses show ha housing assisance aer exreme weaher

evens oen avors middle-class vicims, paricularly homeowners.28 Even when

low-income people own heir own homes, here are oen discrepancies in he aid

hey receive. Aer Hurricane Karina, he sae o Louisiana used millions o dol-

lars rom he U.S. Deparmen o Housing and Urban Developmens Communiy

Developmen Block Gran Disaser Recovery program o assis homeowners,

bu Arican American homeowners received an average o $8,000 less han whie

homeowners. Te discrepancy was a resul o basing award amouns on hous-

ing values raher han he cos o repairs. For Arican Americans in New Orleans

Lower Ninh Ward, he gap beween he damage accrued and he grans awarded

based on propery value was $75,000.29

While helping homeowners is imporanparicularly or low-income home-

owners who migh have inheried heir home or have all o heir asses ied up

in he properyhomeownership raes among low-income people are around44 percen naionally, nearly hal he rae o high-income households, making i

imperaive o include reners prominenly in unding decisions.30 Furhermore,

higher-income evacuees oen secure he surplus housing available in a commu-

niy, making recovery even more challenging or low-income reners.31 Given he


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exremely low incomes o he reners claiming damages in New York Ciy in he

wake o Sandy, hese households are paricularly a-risk o no nding aordable

housing. According o repors, housands o people displaced by Sandy had o

ake sheler in hoels because hey did no have sucien income o qualiy or he

available aparmens or exising disaser programs.32

Keeping housing aordable aer i is upgraded rom damages during disasers also

presens is challenges. Research has shown ha when older, low-cos housing

is brough up o minimal saey sandards, i oen becomes unaordable, hus

creaing a siuaion whereby low-income amilies canno find sae and aordable

housing.33 In addiion, he desrucion o aordable housing drives up he cos o

remaining unis. Aer Karina, more han 40,000 aordable renal unis, ou o a

oal o 86,000 such unis, experienced severe or major damage. Tis creaed a si-

uaion where coss soared or hose unis ha were available. Te air-marke ren

or a wo-bedroom aparmen rose 45 percen in wo years. Furhermore, much

o he housing ha was damaged will no reurn due o he sheer cos o repairingor replacing hem and because o new developmen plans. In New Orleans, 5,000

unis o public housing were demolished in avor o developing mixed-income

housing ha included only 800 public housing unis.34 While mixed-income

neighborhoods are beter han concenraed povery, he plan simply ailed o

acknowledge housing needs.


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It is imperative that public housing authorities and owners o aord-

able-housing properties ensure that low-income residents are better

prepared or extreme weather and the recovery period. An example

o such an eort is being spurred by Enterprise Community Partners,

a nonprot organization that works to create opportunities or low-

and moderate-income people through aordable housing in diverse,

thriving communities. Enterprise Community Partners recently

launched an ambitious multiyear eort to ensure that aordable-

housing providers are more resilient and better prepared to aid their

residents through extreme weather events. The initiative includes:

Conducting a learning collaborative program or multiamily

aordable-housing resilience

Over the next two years, Enterprise Community Partners will besupporting a cohort o 12 aordable-housing organizations in

New York and New Jersey, serving approximately 13,600 low-

and moderate-income households, in order to strengthen their

disaster-preparedness skills, improve the physical resilience o their

properties, and work collaboratively to identiy best practices or

resilience in the multiamily aordable-housing eld to share with

other housing owners in the region and beyond.

Improving the physical resilience o aordable-housing port

Enterprise Community Partners is helping aordable-housin

organizations that are participating in the learning-collabora

program to retrot their aordable multiamily buildings thr

a specialized Resilience Capital Needs Assessment that evalu

the physical vulnerability o properties and outlines strategie

improve resilience.

Providing training or the feld on disaster readiness and resp

Enterprise Community Partners is hosting a series o worksh

and panel presentations that explore long-term recovery ch

lenges and opportunities or the New York regions multiam

aordable-housing inrastructure in the atermath o Super-

storm Sandy.

Developing civic and housing capacity in highly vulnerable lo

income neighborhoods

In key vulnerable New York neighborhoods, such as the Roc

and Coney Island, Enterprise Community Partners is explorin

it can help strengthen the inrastructure o community deve

ment and other organizations that can help vulnerable resid

bounce back ater crises.

Housing resiliency: Enterprise Community Partners

Source: Enterprise Community Partners, Hurricane Sandy Recovery and Rebuilding: Strengthening Afordable Housing and Neighborhoods or the Most Vulnerable Residents (2013).


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Environmental actors

While he srengh and qualiy o housing is criical in he ace o exreme weaher,

he locaion o housing is jus as imporan, i no more so. Tere are a number o

environmenal acors ha can exacerbae he problems low-income communiies

and communiies o color ace when dealing wih exreme weaher, including hea

islands, low-lying ground, poenial oil spills, and debris removal.

Heat islands

Exreme hea is one o he leading weaher-relaed killers in he Unied Saes,

resuling in hundreds o aaliies every year.35 Te inense hea waves in 2011 and

2012 ook more han 181 lives and se emperaure records across he naion.36

Te Unied Saes experienced he warmes 12-monh period in hisory rom

Sepember 2011 o Augus 2012, and more han 28,000 daily high-emperaure

records were mached or broken as o Sepember 12, 2012.37 Tis year he naions

capial had 138 consecuive hours wih emperaures exceeding 80 degrees, break-

ing he 1871 record o 128 sraigh hours.38

Tese emperaure increases can exacerbae wha is known as he hea-island

eec, where densely buil-up areas end o be hoter han nearby rural areas. o

illusrae he poin, he annual average air emperaure o a ciy wih 1 million

people or more can be 1.8 degrees o 5.4 degrees warmer han is surroundings.39

By nigh he emperaure dierence can be as high as 22 degrees.40 Researchers

rom he Universiy o Caliornia a Berkeley sudied 304 meropolian areas in

he Unied Saes where more han 81 million people live and ound ha Arican

Americans are 52 percen more likely han whies o live in such densely packed

neighborhoods; Asians are 32 percen more likely o live in such areas, andHispanics are 21 percen more likely.41


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Having a working air-condiioner reduces he risk o deah rom exreme hea by

80 percen.42 One in ve low-income households do no have air condiioners,

and many canno aord he elecriciy o run hem, making lower-income people

more vulnerable o exreme hea.43

Floodplains and storm surges

Because ooding is one o he mos expensive and mos common exreme weaher

evens, a single ood can push a low-income amily below he povery line. 44

Te Mississippi River and Missouri River oods in he spring and summer o

2011 caused billions o dollars o damage, paricularly o lower-income home-

owners near he rivers. According o a CAP repor, he ypical household in areas

ha suered rom hese oods earned on average $44,547 per yeara saggering

14 percen below he U.S. median income.45 Furhermore, 9 o he 11 couniesadjacen o he Mississippi River in Mississippi have povery raes a leas wice

he naional average.46Te Washingon Posrepored ha river ooding is making

being poor in Mississippi even harder.47

Because sandard homeowner- and rener-insurance policies do no cover ood

damage, propery owners in ood-prone areas are required o purchase addiional

insurance hrough heir insurance provider or rom he ederal governmens

Naional Flood Insurance Program. In July 2012 Presiden Barack Obama signed

he Bigger-Waers Flood Insurance Reorm Ac o 2012, which reauhorized he

Naional Flood Insurance Program and discouraged new developmen in ood-

plains by removing subsidized insurance raes or secondary residences and busi-

nesses. Tese changes, along wih new oodplain maps, will increase insurance

premiums 20 percen o 25 percen, ranslaing o housands o dollars per policy.

Te program, however, ails o address he issue o aordabiliy o ood insurance

or he primary homes o middle- and lower-income amilies, which would help

proec heir asses and help communiies recover quicker hrough more relie.


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Debris removal

Exreme weaher evens such as ornadoes and hurricanes require a rapid and

large-scale clean up. Aer Hurricane Karina, or example, 22 million ons o

debris was removed and disposed o in Louisiana alone. Because o he urgency

and he large underaking, many unlined landlls ha were originally closedbecause conaminans were leaking ino groundwaer were reopened and pu

ino service.48 Furhermore, ederal ime limis on paymen o remove hurricane

debris pressured ocials o reopen hese dumping grounds. One sudy esimaed

ha 1,740 meric ons o arsenic was conained in he 12 million cubic meers o

demoliion wood debris ha was dumped in such landlls in he wake o Karina

in Louisiana alone, posing risks o conaminaion o groundwaer.49

Mississippis sorm debris was esimaed a 46 million cubic yards aer Karina

more han one and a hal imes as much debris as he sae creaes in an average

year.50 One-hird o he debris was esimaed o be vegeaive, which disaser-response ocials preer o burn, ye air esing showed he presence o arsenic and

lead.51 Such concerns have been seen in oher disasers as well. Aer Hurricane

Andrew in 1992, or example, he use o open-air incineraion o debris caused

many complains abou air qualiy.52

A repor rom he Join Cener or Poliical and Economic Sudies explained:

Caasrophic damage ineviably leads o dramaic increases in demand or solid

wase disposal, and chaoic condiions equenly limi opporuniies o eec-

ively sor hazardous om non-hazardous debris. Under hese condiions, he

likelihood remains high ha minoriy and low-income neighborhoods will be

burdened disproporionaely wih waer and air polluion om debris removal

and burning, given he hisoric patern o siing landflls in hose areas.53


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The promise o increased extreme weather poses a great threat to our

nations aging transportation inrastructure. This will be particularly

harmul or low-income people due to the act that they are more

dependent on public transportation year round and need access to

transportation during evacuations. Moreover, as discussed earlier,

power outages in public housing can cause problemssuch as trap-

ping disabled and elderly residents in high risesleaving them to

manage the best they can in their apartments.

In a recent CAP report, Shelter rom the Superstorm, we recommend

that President Obama establish a national inrastructure-resilience

plan and investment strategy to more eectively leverage public and

private capital to modernize and strengthen our nations inrastruc-

ture. This includes ensuring that inrastructure grant programs withinthe Department o Transportation, Housing and Urban Development,

the Army Corps o Engineers, and other agencies only support project

designs that are disaster and climate resilient.

The report also suggests that local ofcials and electric utilities

should work together to increase electricity-grid resilience by put-

ting vulnerable power lines underground where possible, creat

incentives or consumers to install smart meters, and distributi

decentralizing clean power around the grid so that communiti

less vulnerable to massive outages.

To improve resiliency to power outages in Hoboken, New Jers

city leaders there are partnering with the Department o Ene

the New Jersey Board o Public Utilities, and the Public Servic

Enterprise Group, or PSEG, to design a more resilient electricit

to help keep the power on during and ater storms. The partn

will explore options or using advanced, smart-grid technolog

and distributed and renewable energy to improve grid reliab

and resiliency.

The report recommends that state and local governments acro

nation develop sound hazard-mitigation and climate-change r

ience plans, update building codes, and take other actions to re

the consequences o uture storms and climate change. Additio

proposals can be ound in CAPs report titled Inrastructure an

ience: Forging a National Strategy or Reconstruction and Grow

Inrastructure resilience

Sources: Cathleen Kelly and Jackie Weidman, Shelter rom the Superstorm: How Climate Preparedness and Resilience Saves Money and Lives (Washington: Center or American Progress, 2013), available at httamericanprogress.org/wp-content/uploads/2013/07/KellySuperstorm-report.pd; Bracken Hendricks, Inrastructure and Resilience: Forging a National Strategy or Reconstruction and Growth (Washington: Ce

American Progress, 2013), available at http://www.americanprogress.org/wp-content/uploads/2013/04/InrastructureResilience.pd.
http://www.americanprogress.org/wp-content/uploads/2013/07/KellySuperstorm-report.pdfhttp://www.americanprogress.org/wp-content/uploads/2013/07/KellySuperstorm-report.pdfhttp://www.americanprogress.org/wp-content/uploads/2013/04/InfrastructureResilience.pdfhttp://www.americanprogress.org/wp-content/uploads/2013/04/InfrastructureResilience.pdfhttp://www.americanprogress.org/wp-content/uploads/2013/07/KellySuperstorm-report.pdfhttp://www.americanprogress.org/wp-content/uploads/2013/07/KellySuperstorm-report.pdf


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Economic stability

Exreme weaher oen disrups local economies by prevening people rom geting

o work and even by desroying small businesses alogeher. Tis is paricularly

challenging or low-wage workers who depend on each paycheck and have litle o

no savings o all back on. wo programs in paricularhe Disaser Supplemenal

Nuriion Assisance Program, or D-SNAP, and he Disaser Unemploymen

Assisance programare designed o help people during such imes o disaser.

Boh programs, however, presen a number o challenges during implemenaion.

Food access

Following a disaser, one o he immediae concerns o amilies is ood securiy.

While many chariies work o help in he immediae aermah o disaser, ood-

assisance programs work o help sabilize households. In he wake o ederally

declared disasers, saes can apply or D-SNAP, which provides replacemen

benes or regular ood samp recipiens who lose ood in a disaser and exends

benes o low-income households ha would no ordinarily be eligible or

ood assisance. Following Supersorm Sandy, Govs. Chris Chrisie (R-NJ) and

Andrew Cuomo (D-NY) announced he availabiliy o D-SNAP benes o low-

income households in he hardes-hi areas.54

A number o challenges arose, however, ha prevened people rom accessing or

using he benes. Some ood samp recipiens iniially had rouble using benes

because heir elecronic bene cards, which work like credi cards, were rendered

useless in sores ha lacked elecriciy and only acceped cash.55 In New York Ciy

here were only wo ceners se up o accommodae D-SNAP applicans wih he

ederally required ace-o-ace inerviewsone in downown Brooklyn, he ohera par-ime cener in Saen Islanddespie he ac ha relie ceners exised

in oher qualiying pars o he ciy.56 As a resul, hundreds o people showed up

a a ood samp cener in Coney Island only o nd ha i was closed because o

he sorm.57 Compuer records revealed ha many eligible residens did no ake


18/33


advanage o he D-SNAP program, mos likely because hey could no reach mar-

kes ha acceped he benes.58 Tis was parly because eligible residens were

evacuaed o hoels in areas where ood samps are no widely used, causing some

chariies o ry and ll he void.59

In aNew York imes op-ed, Chrisine Quinn, speaker o he New York Ciy coun-cil, and Annabel Palma, chair o he councils general welare commitee, scrui-

nized he shor window o ime people had o apply or he D-SNAP program.

Aer he weeklong sign-up period, we saw ha he program was woeully under-

used, as New Yorkers ound i dicul o regiser. Wha good was his program i

people couldn ge o he sies o apply? asked Quinn and Palma in heir op-ed.60

Unorunaely, a larger hrea looms o he program as D-SNAP is unded hrough

he radiional SNAP program: House Republicans have been argeing SNAP

or billions o dollars in cus. Tis would endanger unding or his v ial program

and increase he likelihood o ood insecuriy among middle- and lower-incomeamilies aer a naural disaser.61 In ac, he House recenly passed a version o he

arm bill ha sripped SNAP rom he legislaion alogeher.62

Unemployment assistance

Anoher criical concern or amilies living in povery or on he brink o povery is

poenial job loss. Immediaely ollowing Supersorm Sandy, job repors revealed

ha New York sae los 29,100 privae jobs, and New Jersey los 8,100. 63 Tose

mos aeced were he people who radiionally have rouble nding jobs: older

workers, single parens wih child care concerns, and immigrans who speak litle

English.64 Boh New Jersey and New York acually experienced lower unemploy-

men levels han beore he sormbu no dieren han 2011 levelsin par

because areas hi by hurricanes almos always see a emporary boos in employ-

men because o rebuilding aciviies.65

Overall, ederal labor laws include more proecions or salaried workers han or

hourly workers when a disaser his. Non-salaried workers are really a he mercy

o heir employers, said Ross Eisenbrey, vice presiden o he Economic PolicyInsiue. I he business closes because o he sorm, employers don have o pay

non-salaried workers or los wages. And i he business is open, bu he worker

can make i ino work, employers are also no required o pay or los wages. And

in mos cases, hey won.66 O course, policies vary rom workplace o workplace,

and some hourly workers are more orunae han ohers.67


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Immigration status is another critical issue in disaster recovery. Un-

documented immigrant amilies are eligible or short-term, noncash

disaster aid such as ood, shelter, and clothingthough they are not

eligible or cash assistance, such as Federal Emergency Management

Agencys, or FEMA, Assistance to Individuals and Households Pro-

gram. Immigrant amilies with a child who is a U.S. citizen may apply

or FEMA assistance on the childs behal. FEMA ofcials can also reer

individuals and amilies to other programs that may provide disaster

assistance regardless o immigration status.

But many undocumented immigrants and mixed-status amilies are

unaware that they are eligible or this recovery assistance. And many

others ear that requesting such assistance may cause them to be re-

erred to immigration ofcials or deportation. Ater Hurricane Sandy,

FEMA signs posted throughout Staten Island advised residents in

English and Spanish to bring their Social Security numbers to receive

help, leading many undocumented Latino immigrants to believe that

they did not qualiy or emergency assistance or that they coul

subject to immigration enorcement i they applied. There were

reports that FEMA ofcials turned some immigrants away beca

their legal statussimilar to reports during previous disaster r

ies such as Hurricane Katrina.

Post-disaster recovery eorts are about public saety and hum

ian aid and should not be subverted by the specter o immigra

enorcement. This means that we need a well-dened protoco

engaging immigrant communities during these recovery eor

That protocol must contain a clear statement rom Departmen

o Homeland Security ofcials that no one applying or disaste

assistance will be reerred or immigration enorcement as a re

o their application. Furthermore, the eligibility requirements

documented immigrants and mixed-status amilies must be c

delineated and part o FEMA training.

Undocumented immigrants

Sources: Jorge Rivas, Undocumented Can Apply or FEMA Sandy Relie Through Citizen Kids, Colorlines, November 19, 2012; Bryan Llenas, Hurricane Sandys Forgotten Victims - Undocumented Immigrants,Fox News Latino, November 20, 2012.

Individuals who lose heir jobs due o exreme weaher qualiy or unemploymen

benes hrough eiher he Unemploymen Insurance Program or he Disaser

Unemploymen Assisance, or DUA, program, which is available o workers

who do no qualiy or regular unemploymen insurance benes. Te maximum

weekly bene amoun is deermined under he provisions o he sae law or

unemploymen compensaion in he sae where he disaser occurred. Sill, heminimum weekly amoun is hal o he average bene amoun in he sae.68

Aer Hurricane Karina, individuals rom Alabama, Louisiana, and Mississippi

relied on such benes, bu he levels o assisance provided under each saes

program were ar oo low. Te hree saes had he lowes average weekly

unemploymen insurance bene levels in he naionequal o roughly

hal he povery level or a amily o our. Tis ranslaed o DUA benes o

$100 a weekor abou $5,000 a year. Te bene levels were especially inad-

equae because o he excepionally dicul economic circumsances aced by

Karina vicims, many o whom los virually everyhing hey had once owned.Furhermore, many o he people evacuaed o saes where he cos o living was

higher han where hey were displaced.69


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Improve resiliency and recovery

in low-income communities

Tere are a number o seps he ederal governmen can ake o ensure ha sae

and local leaders are beter posiioned o help low-income communiies wihsand

and recover rom exreme weaher evens. Below are several recommendaions

ha deserve serious consideraion.

Strengthen and expand aordable housing

Foster social inrastructure around public and aordable housing

Tree days aer Supersorm Sandy, New York Ciy enlised nonpro groups o

conduc a ormal canvass o public housing high-rise buildings in he ood zone o

deermine who remained in hose buildings, ye here was no sanding agreemen

or proocol or how o conduc he canvass. Te Deparmen o Housing and

Urban Developmen, or HUD, should provide unding and echnical assisance o

public housing auhoriies and communiy-based organizaions o work ogeher

o ensure he saey o public housing residens. HUD should ouline he specic

responsibiliies or public housing agencies aer disasers, including assessing

vulnerabiliies o he propery, developing evacuaion plans, oulining roles and

responsibiliies beween public housing agency sa and communiy parners,

noing where elderly and disabled residens live, and updaing hese liss as people

move in and ou. Rep. Nydia Velazquez (D-NY) inroduced similar legislaion,

he Saely Shelering Disaser Vicims Ac o 2013, o ensure ha public housing

auhoriies are beter prepared o help residens hrough exreme weaher evens.70


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In addiion, HUD can provide echnical assisance and resources o develop hese

proocols and agreemens wih communiy-based organizaions, or CBOs, and

housing inermediaries ha can provide addiional capaciy leading up o, during,

and ollowing exreme weaher evens. (see Enerprise Communiy Parners ex

box above) CBOs can apply o work wih public housing agencies and receive addi-

ional suppor or helping nonpro aordable-housing providers wih heir disaserplans as well. HUD can suppor his eor by prioriizing such resilience aciviies

hrough regular Communiy Developmen Block Grans, or CDBG, allocaions.

Te poor qualiy o low-income housing presens disaser service providers wih

demands ha go beyond he provisions o rouine sheler and housing programs.71

Aer Supersorm Sandy hi, New York Ciy relied on ad-hoc eams o voluneers

o care or he low-income elderly and disabled residens rapped in public hous-

ing owers. Communiy-based organizaions and voluneer groups were able o ll

unme needs such as providing sheler, ood, and ransporaion ha even larger

chariy groups ell shor on in he immediae response. Voluneers rom OccupySandy, a relie eor made o ormer Occupy Wall Sree proesers, rallied eams

o go door-o-door in housing projecs o help aid-negleced residens and provide

ashlighs, ood, medical atenion, and even help evacuaing.72

Such responses ake place during many ypes o disasers. In Chicagos hea wave o

1995, 739 people died in mosly low-income Arican American neighborhoods.73

One Chicago neighborhood, called Auburn Gresham, wih he same racial and

income demographics ared beter han even he more afuen neighborhoods in

he ciy during he hea wave. I urns ou ha residens o Auburn Gresham paric-

ipaed in block clubs and church groups, in addiion o socializing a grocery sores

and diners. In shor, he neighborhood banded ogeher; during he hea wave, he

block clubs checked in on elderly and sick neighbors o ensure heir saey.74

A recen poll conduced by he Associaed Press-NORC Cener or Public Aairs

Research conrmed ha neighborhoods ha lacked social cohesion and rus gen-

erally had a more dicul ime recovering ollowing a disaser or exreme even.75

A robus social inrasrucure plays a signican role in our everyday lives, serves

as he rs line o deense during disasers, and can mean he dierence beween

survival and ragedy.76

I is necessary o ensure ha such an inrasrucure is builaround he housing o communiies ha need his suppor mos.


22/33


Ensure air distribution o Community Development Block Grant

Disaster Recovery unds to low-income communities

Housing assisance aer naural disasers has hisorically avored middle-class vic-

ims, paricularly homeowners, and recovery plans oen do no ake ino accoun

aordable-housing needs.77

Aer Hurricane Karina, here was a huge discrepancyin how recovery assisance was allocaed rom Communiy Developmen Block

Gran Disaser Recovery, or CDBG-DR, unds. While more homes han renal

unis in boh Louisiana and Mississippi were damaged, he proporional damage

o he renal sock was even greaer. Despie his, he Governmen Accounabiliy

Oce, or GAO, repored ha $13 billion in assisance wen oward he repair

and replacemen o homeowner unis and roughly $1.8 billion wen oward renal

unis. Te repor noed, When he esimaed number o assised unis is com-

pared o he esimaed number o damaged unis, 62 percen o damaged home-

owner unis and 18 percen o damaged renal unis were assised.78

Te dierence comes down o saes decisions abou how o spend he exible

unding rom HUDs CDBG-DR program.79 ypically, 70 percen o CDBG unds

mus be used or aciviies ha bene low- and moderae-income people, bu ha

number drops o 50 percen during disasers.80 While creaing his exibiliy is

undersandableand saes are able o exceed he 50 percen minimumreduc-

ing risk or low- o moderae-income communiies should remain he guiding

direcive o his program.

Furher, HUD should direc home-recovery programs using hese unds o ollow

a ormula based on cos o repair raher han on he value o homes o ensure ha

low-income people wih less valuable properies are no shor-changed. o ensure

ha hese objecives are being me, saes need clear guidance on how o develop a

recovery program ha adequaely addresses he needs o low-income populaions.

While HUD moniors CDBG-DR plans as hey are implemened, i is necessary

ha hey help guide sae and local governmens in he developmen o plans wih

hese communiies in mind.


23/33


Increase unding to meet pre- and post-disaster afordable-housing shortages

Research shows ha when older, low-cos housing is brough up o saey san-

dards, i oen becomes unaordable o he amilies ha need i mos.81 Despie

his realiy, he disaser-relie legislaion ha was passed in response o Supersorm

Sandy did no include increased suppor or he Low Income Housing ax Credi,or LIHC, as proposed by Sens. Charles Schumer (D-NY) and Rober Melendez

(D-NJ). Te LIHC program is a subsidy used o nance he developmen o

aordable renal housing or low-income individuals and amilies.82 According o

he Biparisan Policy Cener, I is no economically easible o develop aord-

able housing a resriced rens, so a subsidy is needed o make up he dierence

beween wha a propery coss o develop and he income ha can be generaed o

suppor such developmen coss.83

Since is creaion in 1986, LIHC has leveraged more han $100 billion in privae

invesmen capial hrough a dollar-or-dollar reducion in a developers axliabiliy, providing criical nancing or he developmen o more han 2.5 mil-

lion aordable renal homes.84 Te program annually suppors 95,000 jobs and

nances approximaely 90 percen o all aordable renal housing. Moreover, i

is viewed as a criical resource o ransorm communiies suering rom bligh.85

Privae invesmen in LIHC ell rom a high o abou $9 billion in 2006 and 2007

o abou $5.5 billion in 2008 due o he recession and nancial crisis.86

Congress should pass legislaion ha makes increased suppor or LIHC available

aer any presidenially declared disaser in which signican aordable housing

has been damaged or los. Furhermore, LIHC should be increased overall o

address he undersupply o aordable housing, which compromises he saey and

well-being o amilies prior o disasers. In addiion, hese unds should be desig-

naed eligible or resilien inrasrucure, including onsie renewable generaion and

resilien microgrids wihin aordable-housing developmens o serve low-income

communiies wih more resilien, secure, and ecien energy inrasrucure.87

Congress should also coninue o expand unding or he Naional Housing

rus Fund and Capial Magne Fund. Creaed by he Housing and Economic

Recovery Ac o 2008, hese wo unds provide nance o saes and CommuniyDevelopmen Financial Insiuions primarily o suppor aordable renal hous-

ing. Beore hey ell ino conservaorship, Fannie Mae and Freddie Mac were

inended o nance hese wo unds.88 I is criical ha we expand access o qualiy

aordable housing in order o ensure ha people can live sable lives, no mater

wha unoreseen crisis lurks around he corner.


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Address environmental actors

Protect households against extreme temperatures

A 2009 repor rom he Universiy o Souhern Caliornia ound ha householdsin he lowes income bracke use more han wice he proporion o heir oal

income on [energy coss] han households in he highes income bracke.89 While

some low-income amilies receive help paying heir heaing and cooling bills rom

he Low Income Home Energy Assisance Program, or LIHEAP, Congress cu

his programs unding by 30 percen beween 2011 and 2012, resuling in more

han 1 million households losing benes enirely.90 Tis is a serious issue, as expo-

sure o high emperaures, paricularly or he elderly and children, can lead o

hea sroke, exremely high body emperaures, unconsciousness, and even deah.

Fully unding LIHEAP would provide hese households wih he resources o pay

or he energy needed o cope wih exreme weaher evens.

In addiion, here are several low-ech seps o make low-income communiies

cooler, such as planing rees and oher vegeaion, as well as using ligh-colored

roong and pavemen.91 Such seps should be encouraged where ederal und-

ing is leveraging local-communiy developmen and hazard-miigaion eors.

Combating he urban hea island eec and expanding assisance on energy

bills will help low-income communiies survive exreme hea.

Protect households against loods

Climae change will bring heavier precipiaion in he Norheas and upper

Midwes, increasing he likelihood o oods and puting low-income amilies a

risk.92 A CAP repor iled Ensuring Public Saey by Invesing in Our Naions

Criical Dams and Levees documened he crumbling o our ood-conrol

inrasrucure, which was o blame or he devasaion in New Orleans in 2005. 93

Te repor warned:


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I we do no make changes soon o he way we monior and mainain our

naions dams and levees, caasrophes will coninue o occurlikely wih

greaer equency. Te combinaion o exreme weaher and ooding resuling

om global warming and our aging dam and levee inasrucure means ha

wihou acion, housands o lives and communiies are a risk and avoidable

public coss will rise.94

o begin o address his hrea, CAPs Heavy Weaher: How Climae Desrucion

Harms Middle- and Lower-Income Americans repor recommends ha

Congress mus promply reauhorize he Naional Dam Saey Program and

should also creae a similar Naional Levee Saey Program. According o he

repor, Congress mus inves a leas $1 billion annually o rehabiliae our run-

down dam and levee inrasrucure.95

In addiion, as saed earlier, our curren ood insurance programs ail o address

he issue o aordabiliy or middle- and lower-income households, which wouldhelp proec heir asses and help communiies receive more relie and recover

more quickly. In Heavy Weaher: How Climae Desrucion Harms Middle- and

Lower-Income Americans,we recommend creaing ameans-esed voucher pro-

gram o ensure his proecion while a he same ime signaling he long-erm risk

o remaining in such locaions.96

Develop air plans or post-disaster debris removal

Following a large disaser such as a sorm or hurricane, local governmens mus

work quickly o remove debris ha can make rebuilding communiies complicaed

or dangerous. Unorunaely, much o his planning is no in place. Aer Supersorm

Sandy, New York Ciy had o quickly urn o he Army Corps o Engineers o lead

is cleanup eor, as ciy saniaion crews creaed enormous piles o debris on

Saen Island and in Queens.97 Te decision o use he Army Corps was slighly

more expensive han selecing a privae rm, bu i allowed he ciy o ac quickly. 98


26/33


Trough is Hazard Miigaion Program, FEMA should work wih sae and local

governmens in disaser-prone areas o develop plans or how emergency clean

ups will be conduced and how debris should be disposed o, o compile a lis o

possible conracors, and o work o proec low-income communiies rom such

debris. Planning early can allow or communiy inpu ar in advance o any disaser

o ensure ha here is communiy buy-in.

Increase economic stability

Protect the availability o D-SNAP

D-SNAP is viewed as a criical program aer disasers, bu i is being hrea-

ened. D-SNAP unding comes rom appropriaions rom he regular SNAP

program, which has aced ongoing hreas by Republican members o Congress.House Republicans mos recenly sripped ood samp unding rom arm bill

reauhorizaion in an atemp o weaken he programs chances o surviving he

billions o dollars in cus ha have been proposed.99 Te presiden and Congress

should oppose budge cus o SNAP o ensure adequae unding or D-SNAP

assisance. Furhermore, he Deparmen o Healh and Human Services should

urge saes o guaranee adequae sign-up periods or he program o ensure

ha as many qualiying residens o designaed D-SNAP areas apply. In addi-

ion, he Deparmen o Healh and Human Services should make radiional

ood samps available aer severe, persisen power ouage o address elecronic

bene cards no working.

Furhermore, according o a recen CAP repor iled Disasrous Spending:

Federal Disaser-Relie Expendiures Rise amid More Exreme Weaher, he

ederal governmen does no have good accouning o D-SNAP spending. Te

ederal governmen should provide ull accouning o D-SNAP spending so ha

Congress can anicipae and und uure needs.100


27/33


Strengthen and extend disaster unemployment insurance and assistance

Unemploymen Insurance, or UI, and Disaser Unemploymen Assisance, or

DUA, benes are he main source o ongoing income or ens o housands o

disaser vicims. For many vicims, i will be some ime beore hey can reurn o

work, and many ohers will never see heir jobs reurn. Te subsequen job searchor hese individuals will oen be long, eiher because hey will be reurning o

heir hard-hi communiies where jobs will be scarce or because hey will be resid-

ing in new communiies where hey have ewer conacs and know less abou he

job marke. As a resul, Congress should consider no only lenghening he period

or which disaser vicims can receive UI or DUA benes, bu also increasing he

levels o hose benes hemselves. Regular UI benes are paid ou o sae rus

unds, bu Congress could pass legislaion o und a emporary increase in he

level o UI benes or vicims o exreme weaher. In addiion, Congress could

pass legislaion o increase he minimum DUA bene.101 Lasly, sae and local

governmens should publicize he availabiliy o hese benes o ensure ha resi-dens can ake ull advanage o hese programs.


28/33


Conclusion

Supersorm Sandy is jus he laes in a long line o naural disasers ha have

esed he resilience o low-income communiies and exposed he underlying

socioeconomic problems hese communiies ace year round. Wih Presiden

Obamas commimen o cu carbon polluion and prepare our counry o be more

resilien in he ace o climae change, we have a renewed call o consider how low-

income communiies will be uniquely impaced.

As his repor illusraes, we canno coninue o ignore our naions housing crisis,he environmenal jusice issues ha coninue o plague our communiies, and

he growing economic inequaliy ha inhibis our counrys growh. Resiliency

in low-income communiies is an invesmen we can and mus make. According

o he Naional Insiue o Building Sciences, every dollar invesed in building

resilience and reducing exposure o disaser risks saves $4 in disaser response

and recovery. And ye, axpayers spen nearly $6 or disaser recovery or every $1

spen o increase general communiy resilience over he pas hree years.102

By addressing he availabiliy and qualiy o aordable housing, proecing com-

muniies agains environmen acors, and ensuring greaer economic securiy,

low-income communiies will be beter equipped o cope wih an unoreseen

crisis. I is ime ha we increase our commimen o greaer resiliency and address

he paricular vulnerabiliies ha low-income communiies ace. As exreme

weaher evens become more and more commonplace, hese evens will exacer-

bae hese vulnerabiliies, and he srengh o our counry as a whole will decline.


29/33


About the author

Tracey Ross is a Senior Policy Analys wih he Povery o Prosperiy Program a

American Progress. In his role, she ocuses on place-based responses o gh-

ing povery. Prior o joining American Progress, she was a program associae a

Living Ciies where she worked on heir signaure eor o suppor ciies, rans-orming broken sysems o mee he needs o low-income residens. In 2012 she

was seleced as a Nex American Vanguard,Nex Ciy Magazines recogniion o

40 urban leaders under 40. racey began her career in he oce o ormer Sen.

Hillary Rodham Clinon (D-NY) working on judiciary, women, and childrens

issues, and he oce o ormer Sen. Ken Salazar (D-CO), working on energy and

environmen issues. racey received her bachelors degree rom he Universiy o

Caliornia, Berkeley, and a masers in public aairs rom Princeon Universiys

Woodrow Wilson School.

Acknowledgements

Tank you o Cener or American Progress sa members Darryl Banks, Carol

Browner, Daniel J. Weiss, Richard Caperon, Bracken Hendricks, Marshall Fiz,

Julia Gordon, and Jackie Weidman or heir many conribuions o his repor.


30/33


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Endnotes
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74 ibd.

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p://bgsy.ap.g/ace/ap-c-p-eds--ey-sady-suvva.

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78 Gveme Accuaby oce, Dsase Asssace:Fedea Asssace Pemae husg PmayBeeed hmewes; oppues Exs Bee

tage husg needs, GAo-10-17, rep eCmmee hmead Secuy ad GvemeaAas, Jauay 2010, avaabe a p://www.ga.gv/asses/310/300098.pd.

79 Gveme Accuaby oce, Gu Cas Dsaserecvey: Cmmuy Devepme Bc Ga P-gam Gudace Saes needs Be impved, GAo-09-541, rep e Cmmee hmead Secuy

ad Gvemea Aas, U.S. Seae, Jue 2009,avaabe a p://www.ga.gv/asses/300/291291.pd.

80 oce Cmmuy Pag & Devepme, CDBGDisaster Recovery Framework(Depame husgad Uba Devepme, 2013), avaabe a p://p-a.ud.gv/udpa/dcumes/uddc?d=cdbg_ag_2_2_13.pd.

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83 Bpasa Pcy Cee, husg Amecas Fuue.

84 Eepse Cmmuy Paes, Abu e lihtCPgam.

85 ibd.

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87 Bace hedcs ad Adam Sepad James, tenewed Eegy Web: te Cvegece Eegy E-cecy, Sma Gd, ad Dsbued Pwe Geeaas e nex Fe e iC t revu (Wasg-: Cee Ameca Pgess, 2012), avaabea p://www.amecapgess.g/wp-ce/upads/2012/08/0709_CeaEegyWeb2.pd.

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92 naa Cmae Assessme ad Devepme Ad-vsy Cmmee, Fedea Advsy Cmmee DaCmae Assessme.

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a disaster in the making

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