Hurricane Ike: Rehabilitation of Affordable Rental Units on Galveston Island

Transcription

1 Hurricane Ike: Rehabilitation of Affordable Rental Units on Galveston Island Final Report A. Christina Wild CRP36 Independent Study Summer 200 Professor Elizabeth Mueller

2 The University of Texas at Austin School of Architecture - UTSoA Hurricane Ike: Rehabilitation of Affordable Rental Units on Galveston Island Final Report A. Christina Wild A. Christina Wild, 200 Published by: Center for Sustainable Development The University of Texas at Austin School of Architecture 1 University Station B500 Austin, TX 12 All Rights reserved. Neither the whole nor any part of this paper may be reprinted or reproduced or quoted in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without accompanying full bibliographic listing and reference to its title, authors, publishers, and date, place and medium of publication or access. Preliminary work for this project was done as part of a spring 200 course, CRP 3, taught by Dr. Mueller. Group members included Abel Zamora and Meredith Richards. Table of Contents I. INTRODUCTION: HURRICANE IKE 4 II. PRE-IKE GALVESTON 4 Brief History of Galveston 5 Narrative General Population Trends Shaping Galveston: Demographic and 6 Geographic Trends Galveston County Trends Galveston Island Trends Galveston Island Geography and Land-Use III. THE CATASTROPHIC EVENT: HURRICANE IKE 14 Damage Assessments 14 April 200 Galveston Team Visit Texas Department of Insurance and FEMA Mitigation Assessment Team Assessments FEMA/CoG Issuance of New Building Permits Impact on Affordable Housing Stock 1 Housing Effected by Ike Galveston Housing Authority Temporary Housing Permanent Housing Community Response to Rebuilding Low-Income Housing Vulnerability Analysis of Galveston Island Based on 21 Social and Environmental Vulnerability Index, Cutter Research Methodology Project Results pg IV. CASE STUDIES ON REHABILITATION OF AFFORDABLE 25 HOUSING STOCK AFTER NATURAL DISASTERS Earthquakes in Northridge, California 25 Brief Review of Effects of Disasters Unique Challenges Lessons Learned Regarding Affordable Housing Rehabilitation Earthquake in Kobe, Japan 2 Brief Review of Effects of Disasters Unique Challenges Lessons Learned Regarding Affordable Housing Rehabilitation Hurricane Katrina and New Orleans 30 Brief Review of Effects of Disasters Unique Challenges Lessons Learned Regarding Affordable Housing Rehabilitation

3 The University of Texas at Austin School of Architecture - UTSoA Table of Contents cont. pg V. RECOMMENDATIONS FOR APPLICATION OF BEST 34 PRACTICES FROM PREVIOUS DISASTERS Formulating and Implementing More Informed Policy 35 Hazards and Housing Markets 3 Funding Recovery and Rebuilding 3 VI. CONCLUSIONS 41 VII. APPENDIX MAPS 43 Map 1: Galveston County % Non-White (Minority) 43 Population, 2000 Map 2: Galveston County % Black Population, Map 3: Galveston County Median Family Income, Map 4: Galveston County Individual Poverty Rate, Map 5: Galveston County % Unemployed, Map 6: Galveston County Non-White X 4 Vulnerability, 2000 Map : Galveston County Rent Burden, Map : Galveston County FEMA Hurricane 50 Vulnerability Map : Pre-Ike Major Landmarks & Land Uses 51 Galveston, Texas Map 11: Galveston County % Renter-Occupied 52 Units, 2000 Map 12: Galveston County Median Year Built, Map 13: Galveston County Minority x Poverty x 54 Disability x Unemployment, 2000 Additional Map: Galveston County Minority X 55 Poverty, 2000 Additional Map: Galveston County Percent Disabled 56 Population, 2000 Additional Map: Galveston County Rental Plumbing 5 x Kitchen, 2000 Additional Map: Galveston County Population 5 Density, 2000 Additional Map: H-GAC Disaster Map Hurricane Ike 5 Track & Landfall Additional Map: H-GAC Disaster Map Hurricane Ike 60 Storm Analysis Area FEMA/City of Galveston Damage Assessment Maps 61 Social & Environmental Vulnerability Maps 6 VIII. WORKS CITED 0

4 Hurricane Ike Rehabilitation 4 I. INTRODUCTION: HURRICANE IKE On September 13, 200, Hurricane Ike, a Category 2 hurricane, barreled through Galveston Bay (Berg, 200), leaving in its wake a large potion of the island under up to eight feet of water (East et al., 200). There were several reports of storm surge reaching 14 feet, which went around the Galveston Seawall, flooding the city via the storm sewers, and the unprotected eastern shores of the island, prior to the hurricane s landfall on September 12 (Carney and Dorell, 200). With an estimated pre-ike population of over 50,000 (U.S. Census Bureau, 200) local and regional organizations immediately began planning for recovery; by April 200, an estimated 0 percent of the population (More People Returning, 200) has already returned to the island, emphasizing the need to quickly design and implement both short-term and long-term plans for rebuilding and recovery. There is very little research that examines the effects of this disaster on Galveston Island as recovery and rebuilding efforts are both still incredibly dynamic. However, there are bodies of research that focus on disaster recovery, recovery and rebuilding planning, and their effects on distressed populations. This report will examine Galveston s demographic and geographic trends over time, current (Pre & Post Ike) housing make-up and needs of lowincome renters, and how this disaster will influence the ability of low income Galvestonians to return home and thrive in their city. The city of Galveston was an island that already had a tight supply of affordable housing units. According to 2000 United States Census data, approximately 53. percent of the Galveston city population lived in renter occupied housing units. Lessons learned from previous disasters, such as Hurricane Katrina and the Californian and Japanese Earthquakes of the early 10 s, will be reviewed for the purposes of highlighting best practices. These can be applied to the rehabilitation policy and planning of rental housing in Galveston.

5 Hurricane Ike Rehabilitation 5 II. PRE-IKE GALVESTON Brief History of Galveston. In 152, Alvar Núñez Cabeza de Vaca made his journey through Texas beginning along the Texas coast. It has been debated whether or not Galveston Island was where he ship-wrecked (Chipman). Over time, Galveston grew on the strength of its port; cotton moved outward, and farming supplies and immigrants came in. In 100, Galveston suffered through what has been known as The Great Storm; a hurricane killed an estimated 6,000 people and demolished the city. Another 4,000 to 6,000 people died on the nearby coast. In response to the disaster, Galveston built the 1-foot tall Seawall, raised the grade level of its central roadways, and built a bridge to the mainland (Chipman). Between the World Wars, the citizens tolerated and supported illegal activities such as gambling and prostitution and took pride in being "the free state of Galveston. In 15, however, Attorney General Will Wilson shut down bars, destroyed gambling equipment, and closed many houses of prostitution. Between 15 and 1 Galveston voters defeated proposals to legalize casino gambling, although proponents argued that gambling could promote the local economy (Chipman). Galveston s survival as a medium-sized city is due in part to the presence of the University of Texas Medical Branch. In 11, the 1 th Texas Legislature authorized the construction of the U.T. Medical Branch; voters chose the location of Galveston (McComb). Since its completion in 11, state, federal, and private dollars have enabled the addition of major clinical facilities, including Negro Hospital (102, 13), Children's Hospital (112, 13, 1), Woman's Hospital (115), a psychiatric hospital (131, 12), a new John Sealy Hospital (154) and John Sealy Hospital Towers (1), ambulatory care facilities (130, 166, 13), Shriners Burns Institute (166, 12), Jennie Sealy Hospital (16), the Texas Department of Corrections Hospital (13), and a vastly expanded Emergency Trauma Center (12) (Burns). By 200 (prior to the storm), UTMB employed almost 12,000 people on its eighty-four-acre

6 Hurricane Ike Rehabilitation 6 campus, and was the largest employer in Houston-Galveston (Galveston Chamber of Commerce). General Population Trends. Galveston served as a port of entry for thousands of immigrants. For example, between 10 and 114, during the period now known as the Galveston Movement, 10,000 Jewish immigrants fleeing Europe arrived in Galveston, approximately one-third the number who migrated to the Holy Land during the same period (Manaster). Despite the amounts of people flowing through Galveston ports, the city s population was limited by the island s size and accessibility. Table 1 tracks the general population growth of Galveston County with selected U.S. Census data. Table 1: Population % by Race Galveston County Selected Census A review of the data shown reveals that the largest percentages of growth occurred between 120 and 140; during this time, the population almost doubled. Furthermore, the ethnic and racial composition has remained steady throughout the period shown, although a steady decline in the minority populations has been observed, especially within the past 15 years. Further analysis of these and other demographic trends follow. Shaping Galveston: Demographic and Geographic Trends. Most of the distressed populations in Galveston City and County live in rental housing. In this section socioeconomic disparities and geographic isolation for these populations will be discussed. We will first discuss the geographic and demographic trends within Galveston County. We will then explore these trends within the City of Galveston, which is where a heavy concentration of low-income and minority individuals live within the county. It is on these populations, which are already 1 Archived U.S. Census Data compiled via SocialExplorer.com

7 Hurricane Ike Rehabilitation limited by several factors discussed below, that our preliminary research will focus as Hurricane Ike also disproportionately affected them 2. These pre-existing housing patterns and the unique demographic characteristics of the island will be important context for assessing the community s options for rebuilding. The Geography of Galveston County. Galveston County is located on the Texas Gulf Coast. It lies approximately eighty miles southwest of the Louisiana state line, east of Brazoria County, and west of Chambers County. It is also bound by the Gulf of Mexico on the southeast. The county is comprised of the mainland, Galveston Bay, and Galveston Island. The county consists of approximately 450 square miles. Cities and towns within the county include Galveston Island, Texas City, La Marque, Port Bolivar, Clear Lake Shores, Crystal Beach, Jamaica Beach, Kemah, Hitchcock, Dickinson, League City, Algoa, Arcadia and Friendswood. The city of Galveston is the county seat and lies approximately 51 miles southeast of Houston (Kleiner; Galveston, 200). Demographics of Galveston County. According to the American Community Survey three-year estimate, there are 105,000 households with an average size of 2.6 people 3 in Galveston County. The population is comprised of mostly families, which includes both married-couple families (50 percent) and other families (1 percent). Non-family households included single individuals or those living with unrelated individuals (33 percent). 4 Data using the 2000 United States Census and the American Community Survey Three Year Estimates were used to assess the demographics and population statistics of Galveston County. The demographics of Galveston Island and the County are similar in areas 2 Page 14 of this report discusses damage assessments for Galveston County, and will highlight which areas were affected by the hurricane 3 United States Census Bureau - Galveston County, Texas Population and Housing Narrative Profile: , Data Set: American Community Survey 3-Year Estimates, Survey: American Community Survey, Online Resource: ds_name=&-redolog=false - accessed May 10, Ibid.

8 Hurricane Ike Rehabilitation of overall racial breakdown. The available data reflects moderate change in the percentage of Black/African-American residents in the county between the 2000 Census and American Community Survey. The following table lays out the racial breakdown for Galveston. It should be noted that Latino/Hispanic respondents were grouped as of any race. The values for Hispanic/Latino reflect a percentage of the total population. Table 2: Racial % Breakdown Galveston County 2000 Census and ACS Estimates 5 Race/Ethnicity 2000 Census ACS Estimates White 2.% 5.0% Black/African American 15.4% 14.3% Asian 2.1% 2.% Other.% 5.% Two or More Races 2.1% 1.% Latino/Hispanic 1.0% 20.5% Source: United States Census Bureau, Census 2000 and American Community Survey Estimated Income of Galveston County Residents. The real median income in the United States rose from $4,56 to $50,233 between 2006 and The median household income for Texas households was $4,563 in 200 (DeNavas-Walt et al., 200). The ACS survey found that Galveston County as a whole had a median household income of $51,5 while the city of Galveston was $34,153. Viewing the map entitled Galveston County Median Family Income, , the geographic patterns associated with income become apparent. The highest income households are concentrated along the northern borders of Galveston County within Friendswood, Webster, and League City. Higher wealth households 5 Online Resource: United States Census Bureau Galveston County Fact Sheet (2000 Census): 00US416&_street=&_county=Galveston&_cityTown=Galveston&_state=04000US4&_zip=&_lang=en&_sse=on&ActiveGeoDiv =&_useev=&pctxt=fph&pgsl=050&_submenuid=factsheet_1&ds_name=acs_200_3yr_saff&_ci_nbr=null&qr_name=null&reg =null%3anull&_keyword=&_industry= - and, United States Census Bureau Galveston County Fact Sheet ( , American Community Survey): C05000US416&_street=&_county=Galveston&_cityTown=Galveston&_state=04000US4&_zip=&_lang=en&_sse=on&ActiveGe odiv=&_useev=&pctxt=fph&pgsl=050&_submenuid=factsheet_1&ds_name=dec_2000_saff&_ci_nbr=null&qr_name=null&reg= null%3anull&_keyword=&_industry= accessed, May 10, See page 45 in the Appendix for Galveston County Median Family Income, 2000

9 Hurricane Ike Rehabilitation are also concentrated along Bayou Vista and Tiki Island, which are also along the mainland but northeast of Galveston. The city of Galveston has single tracts that are above the $63,16 median family income level, and these tracts are located along the eastern side of the island, south of Broadway, and notably close in proximity to Historic Downtown. As will be discussed later, these particular tracts remain removed from areas of poverty, rent burden and high percentage areas of non-white residents. Galveston City/Island Demographics. The population of Galveston Island was estimated from ACS datasets to be at 54,000. Within this population, there were 24,000 households with an average household size of 2.2 people. Of the families within Galveston, married-couple families make up 32 percent of the population, and other families were 1 percent. Non-family households were 4 percent of Galveston Island residents. In comparison to the state of Texas, Galveston Island has a higher percentage of renter occupied housing units (5 percent) than owner occupied units (43 percent). When looking closer at the renter population, we find that an estimated 2 percent of renters on Galveston Island live in single-family (one unit per structure) homes. Slightly larger rental properties (twonine units) are occupied by 30.2 percent of island renters. The overwhelming concentration of rents in small rental properties poses particular challenges to rebuilding (to be discussed later). Regarding housing cost and income, 43.2 percent of Galveston Island renters spent on average 30 percent or more of the their income on housing. Something particularly disturbing about this housing tenure data is that 0.1 percent of the renters making less than $20,000 a year (household income) spent more than 30 percent of their income on housing. 10 At the Texas has 5,2,15 (65.2%) owner-occupied unites, and 2,16,110 (34.%) renter-occupied units. Source: U.S. Census Bureau, American Community Survey. Occupied Housing Unit Characteristics of Galveston City. United States Census Bureau, American Community Survey. Ibid. 10 Ibid.

10 Hurricane Ike Rehabilitation 10 national level, 6.5 percent of renters making less than $20,000 a year (household income) spent more than 30 percent of their income on housing. The U.S. average percentage of renters that spend 30 percent or more of their income on rental housing is estimated to be 45.6 percent, while the average percentage of renters in Texas that spent 30 percent or more of their income is 44.3 percent. 11 Based on the census information provided, Galveston Island also has higher rates of ethnic and racial minority populations than the county overall. Despite Galveston Island s steady population decrease 12, one statistic that is striking is the decrease in the number and percentage of Black/African-American residents on the island within the current decade alone. This differs from the noticeable growth in number and percentage of white residents on the island. Table 3: Racial % Breakdown Galveston City 2000 Census and ACS Estimates 13 Race/Ethnicity 2000 Census % of Population 2000 Count ACS % of Population Count White 5.% 33, % 35,634 Black/African American 25.5% 14, % 10,4 Asian 3.2% 1,3 2.% 1,533 Other 10.2% 5,56.2% 4,3 Two or More Races 2.4% 1,3 2.6% 1,412 Latino/Hispanic 25.% 14,53 2.% 14,1 Source: United States Census Bureau, Census 2000 and American Community Survey 11 Ibid. 12 United States Census Bureau. Population Estimates, Census 2000, 10 Census for Galveston city. =galveston+city&_citytown=galveston+city&_state=04000us4&_zip=&_lang=en&_sse=on&activegeodiv=geoselect&_useev= &pctxt=fph&pgsl=010&_submenuid=population_0&ds_name=null&_ci_nbr=null&qr_name=null&reg=null%3anull&_keyword=&_in dustry=. Retrieved July 20, United States Census Bureau. 200.Galveston city, Texas, Population and Housing Narrative Profile: , Data Set: American Community Survey 3-Year Estimates, Survey: American Community Survey, Online Resource: %C16000US4206&_street=&_county=galveston+city&_cityTown=galveston+city&_state=04000US4&_zip=&_lang=en&_ss e=on&activegeodiv=&_useev=&pctxt=fph&pgsl=160&_submenuid=factsheet_1&ds_name=dec_2000_saff&_ci_nbr=null&qr_n ame=null&reg=null%3anull&_keyword=&_industry=. Retrieved July 20, 200.

11 Hurricane Ike Rehabilitation 11 Geographic trends for poverty within Galveston County and the City of Galveston overlay each other in many respects. If one views the following maps, Galveston County Percent Black, 2000, Galveston County Individual Poverty Rate, 2000, Galveston County Median Family Income, 2000, Galveston County % Unemployed, 2000, Galveston County Non-White X Vulnerability, 2000 and Galveston County Rent Burden, , the concentrated disparities in wealth are significantly apparent. These lie north of Broadway Avenue in Galveston Island and in tracts within La Marque where the percentage of Black population is between 0 percent and 100 percent. Three specific land tracts in Galveston Island where low-income populations are concentrated and where other disparities are strongly represented include tract numbers , , and These tracts are north and along Broadway and between 24 th and 4 th Streets. These tracts consistently lie along the most vulnerable land areas for hurricanes as noted by Galveston County FEMA Hurricane Vulnerability, According to this map, these areas are vulnerable to storms that maintain only tropical storm strength. Tropical storms are considered to be an intermediate stage between a loosely organized tropical depression and a hurricane. They have average maximum sustained surface winds of 3 3 miles per hour. 16 A look into school desegregation efforts supports the assertion that notable evidence of geographic isolation exists alongside citywide socioeconomic disparities. A desegregation plan the district formulated in 16, in response to a 15 lawsuit, required all students to attend the school nearest to where they lived. As an indication of the geographic segregation that persisted in Galveston, judges had ruled several times since then that the district was not fully integrated. With enrollment determined by the student s place of residence, this implies that 14 See Appendix for maps, beginning on page See page 50 in the Appendix for Galveston County FEMA Vulnerability, Tropical storm." Encyclopædia Britannica Encyclopædia Britannica Online. Retrieved on May 16, 200.

12 Hurricane Ike Rehabilitation 12 families of varying ethnic and racial identities, geographically isolated on the island, did not disperse amongst the community enough to effect student enrollment at the school district (Galveston Schools, 200). Forty years of segregation and geographic isolation has certainly determined the heavily concentrated locations of affordable housing on the island. Land use on the island also supports the assertion that geographic isolation still exits. Data from the Houston-Galveston Area Council locates the largest concentration of residential property in the center of the island, from slightly north of Broadway to the Seawall and from Ferry Road west to 61 st Street. The western shores are populated with a combination of commercial and industrial properties, with a rail yard adjacent to Interstate With the most desirable locations of the island for residential development being behind the protection of the Seawall but still close to the eastern shore, the least desirable areas of the island are concentrated on or in the vicinity of the same census tracks that have high concentrations of ethnic minorities and income disparities. Again, according to the FEMA Vulnerability map 1, these areas are vulnerable to storms that maintain only tropical storm strength. And, as predicated by the FEMA Vulnerability map, the storm surge came from the bay over the unprotected western shores, disproportionately destroying the housing of the distressed populations described above. Affordable Housing: Serving Distressed Populations in Galveston: Galveston Housing Authority. The Galveston Housing Authority (GHA) has provided housing to lowincome families on the island since 140. Up until the storm, the GHA oversaw approximately 00 units of Public Housing (25 of which are scattered site) and administered 1,213 Section Housing Choice Vouchers (Kerney-Odom, 200). 1 Land Use Dataset. Houston-Galveston Area Council. Online resource: 1 See page 50 in the Appendix for Galveston County FEMA Vulnerability, 2000

13 Hurricane Ike Rehabilitation 13 The first executive director secured funds to build Oleander Homes and Palm Terrace. Oleander Homes, at 522 Broadway, was built in 140 and the Palm Terrace development, at 4400 Sealy, was built in 143. In 144, three projects of war-time housing, Oleander Addition, Island City Homes and Bayview Homes, totaling 1,000 units, were completed and placed in operation. These three have since been demolished and newer, more modern units built (Kerney-Odom, 200). During the years that followed additional housing units were built. Magnolia Homes, at 1601 Strand, was built in 153, Cedar Terrace and Cedar Terrace Addition, at rd Street, were built in 154, and Palm Terrace Addition was built in 156. The two senior citizen developments, Gulf Breeze, at 1211 Moody, and Holland House, at st Street were constructed in 10 and 16, respectively. Table 4: 200 Housing Portfolio City of Galveston (GHA) Property Name and Address Cedar Terrace, 214 Ball Gulf Breeze, 1211 Moody Holland House, st Street Magnolia Holmes, 1601 Strand Oleander Homes, 522 Broadway Palm Terrace, 4400 Sealy The Oaks, 4300 Broadway Source: Galveston Housing Authority (200) Number and Types of Units 13 Apartments 1 Apartments, Elderly High-rise 15 Apartments, Elderly High-rise 133 Apartments 206 Apartments 104 Apartments 20 Elderly Duplex Units Since then, a significant amount of work has been done to modernize the properties, along with demolition and new home ownership opportunities. In 2002, GHA completed Cornerstone Place, a 32-unit subdivision built on the property formerly housing Cedar Terrace Residents, and as recently as 2005 old Palm Terrace was demolished to construct The Oaks, a 2-home subdivision and 20-unit elderly duplex facility for public housing residents (Kerney- Odom, 200).

14 Hurricane Ike Rehabilitation 14 III. THE CATASTROPHIC EVENT: HURRICANE IKE Ike was a long-lived Cape Verde hurricane that caused extensive damage and many deaths across portions of the Caribbean and along the coasts of Texas and Louisiana. It reached peak intensity as a Category 4 hurricane over the open waters of the central Atlantic, directly impacting the Turks and Caicos Islands and Great Inagua Island in the southeastern Bahamas before affecting much of the island of Cuba. Ike, with its associated storm surge, then caused extensive damage across parts of the northwestern Gulf Coast when it made landfall along the upper Texas coast at the upper end of Category 2 intensity (Berg, 200). Significant storm surge and wave damage occurred along an extensive section of the upper Texas and southwestern Louisiana coast, with the worst devastation on the Bolivar Peninsula and parts of Galveston Island. Damage Assessments. The City of Galveston suffered major damage as a result of Hurricane Ike. The entire island was evacuated and the aftermath of the storm left the city without working utilities for weeks. According to several reports, the storm surge reached 14 feet in some places, which went around the Galveston Seawall, flooding the city via the storm sewers, and the unprotected "bay side" of the island, long before the first winds or drop of rain (Carney and Dorell, 200). Many property owners (non-renters) suffered significant damage as well. Per discussions with Galveston residents, the downtown area known as the Strand had waterline damage up to eight feet high. Other areas of the island suffered similar destruction. Rental units, homes, properties and businesses north of Broadway suffered extensive damage due to the path of the storm and the fact that the particular segment of the island lies at lower sea level. The maps produced illustrate the concentration of non-white residents, rental burden and rates of households in poverty within that path of destruction. April Galveston Team Trip. A fact-finding trip was taken during the weekend of April 2, 200 to the City of Galveston in order to assess the damage caused by Hurricane Ike and the

15 Hurricane Ike Rehabilitation 15 disproportionate effects on the low-income and minority communities as well as renters. As mentioned previously, the City of Galveston has a disproportionate percentage of renter population. When one views the Galveston County % Renter-Occupied Units, map, it is abundantly clear that a significant number of the city of Galveston s tracts are above 50.1 percent in occupied rental units with a significant number of tracts having 66. percent or above in percentage of the population in renter occupied tracts. An entire swath of the island north of Broadway shows the highest concentration of renters, with 66. percent or above of the population in renter occupied housing units. Structures in this area tended to be built between 151 and 161 based on observations using census data and shown in the map Galveston County Median Year Built, TDI and FEMA MAT Assessments. Hurricane Ike has been categorized as the fourth costliest hurricane to affect the United States, after Hurricanes Katrina (2005), Andrew (12), and Wilma (2005) (Berg, 200). The Texas Department of Insurance estimates that the Texas Windstorm Insurance Association (TWIA), due to Hurricanes Dolly 21 and Ike, actually surpassed the funds available for claims and reinsurance for the state. It required the 200 Texas Legislature to create and pass emergency legislation to sustain the TWIA. In the 6 TWIAeligible counties most affected by Hurricane Ike, TWIA had 142,566 policies in force and a total exposure of approximately $42 billion (Texas Department of Insurance, 200). FEMA had a Mitigation Assessment Team (MAT) visit and submit a report on building performance observations in the Galveston in response to Hurricane Ike. Their report, published in April 200, made the following observations regarding building performance due to high winds and flooding 22 : 1 See Galveston County Median Year Built, 2000 map in the Appendix, page See Galveston County Rent Burden, 2000 map in the Appendix, page Hurricane Dolly hit the south Texas coast in July Summarized from FEMA s Hurricane Ike in Texas and Louisiana: Mitigation Assessment Team Report, Building Performance Observations, Recommendations, and Technical Guidance.

16 Hurricane Ike Rehabilitation 16 Buildings that were built according to minimum standards and code, with the lowest floor elevation at the Base Flood Elevation (BFE), sustained significant damage or destruction when the flood level exceeded the BFE. In Texas, where specific independent review and inspection practices were provided by TDI, the required construction practices were well understood and complied with by the builders. However, questionable building practices of new construction in unincorporated areas, that fall within the purview of the Texas Residential Construction Commission (TRCC), were observed. Several houses visited by the MAT in Galveston County were advertised as or known to be enhanced code construction. While it is true that these houses were elevated above the BFE and incorporated certain wind-resistive features that exceeded code requirements, some of these houses sustained wind damage. The wind damage observed by the MAT was typically roof covering loss, roof sheathing loss, or water penetration through soffits and vents or around windows and doors. The MAT also observed a lack of thoroughness and robustness in mitigation efforts. FEMA/City of Galveston Damage Assessment Maps for Building Permits. The City of Galveston has compiled information regarding which properties have been cleared for rebuilding by the city and FEMA, and put this information on several maps that cover the island at the property level. Although posted in late December 200, these are the most recent assessments provided by the city. These maps will be referenced throughout this section, and can be found in the Appendix 23 and online See four of the Damage Assessment Maps in the Appendix, beginning on page Can all be found online at < accessed on June 23, 200.

17 Hurricane Ike Rehabilitation 1 One of the first observations that can be made is that any and all pier structures that jut from the eastern beach were destroyed. The Seawall has provided enough protection to deem the majority of structures in close proximity, including all of the UTMB Campus, eligible to move forward in the rebuilding process. In addition to the structures behind the protection of the Seawall, the majority of structures south of Broadway and east of 45 th street have been allowed to obtain building permits. This includes the Historic District of Galveston, which is just north of Broadway between 10 th and 1 th streets. Many of these areas were given exemptions and allowed to immediately start the rebuilding process due to their historical building/landmark designation. The remaining parts of Galveston proper, just south of Broadway from 45 th to 61 st streets, to almost all of the areas north of Broadway, have sustained substantial damage and cannot be issued permits to rebuild. This area includes mostly residential areas, but also some industrial and commercial properties. The properties north of Broadway, from 2 th to 45 th streets, have the highest concentrations of areas with permits on hold because of their extensive damage. According to our observations, census data, and maps produced for this project, this area is also home to the highest concentration of rental housing on the island and where the highest concentrations of low-income and minority households are found. Evaluation of structures west of 100 th street remains sporadic and incomplete. Impact on Affordable Housing Stock. Per conversations with local residents and decision makers during our trip in April, Broadway Boulevard acts as a environmental and socioeconomic dividing line across the island. As Broadway is officially a Texas state highway, it has been artificially raised above sea level over time. The consequences stemming from Ike include the extraordinary damage to rental properties north of Broadway. This affected area is also where a substantial percentage of the public housing units were located on Galveston.

18 Hurricane Ike Rehabilitation 1 When viewing Galveston County Rent Burden, , Galveston County Percent Black, , Galveston County % Non-White, and Galveston County % Renter-Occupied Units, the concentration of minorities and low income in these extensively damaged areas of the island becomes disturbingly clear. The greater effects of the damage caused by the hurricane remains concentrated in areas with higher percentages of members of the city s most disadvantaged groups. Galveston Housing Authority: Post Ike. Temporary Housing. The Galveston Housing Authority has been charged with assisting displaced residents of Galveston via the Disaster Housing Assistance Program for Hurricane Ike. The Disaster Housing Assistance Program (DHAP-Ike/Gustav) was established by HUD and the FEMA to assist families who were displaced by Hurricanes Ike and Gustav with up to 1 months of temporary housing assistance. Caseworkers with the Disaster Housing Assistance Program contacted at least 3 percent of these 51,000 families to notify them of eligibility and to invite them to participate in FEMA s rental assistance program. By May 200, 1,000 families have agreed to participate in the program with over 13,6 having received rental assistance. The remaining 5,400 are close to signing a contract (Lone Star Legal Aid, Hurricane..., 200). Permanent Housing. Four GHA sites, including 56 units, were flooded and subsequently condemned as a result of Hurricane Ike. The GHA has also worked to provide transitional housing for those tenants affected by Ike. Lone Star Legal Aid (LSLA), a law firm that provides free civil legal assistance to lowincome individuals and families who have immediate needs but cannot afford an attorney, was able to form an agreement with GHA to replace their destroyed or demolished multi-family public housing units 1 for 1. This was in legal response to GHA s attempt to side-step HUD 25 See Galveston County Rent Burden, 2000 map in the Appendix, page See Galveston County Percent Black, 2000 map in the Appendix, page See Galveston County % Non-White, 2000 map in the Appendix, page See Galveston County % Renter-Occupied Units, 2000 map in the Appendix, page 52.

19 Hurricane Ike Rehabilitation 1 legal requirements and demolish several of its sites without a plan for replacement as described in a letter to HUD on February 2, 200. This plan also requires GHA to actively protect the rights of their displaced residents (Lone Star Legal Aid, LSAL and Galveston, 200). The Galveston Housing Authority has begun a multi-phase development plan in response to the damage incurred by Hurricane Ike and the legal action of LSLA. Phase one of GHA s development plan addresses the demolition of Oleander Homes and Palm Terrace, which is scheduled for completion in August 200. Upon demolition of these two sites, GHA will then build 40 new elderly units at Palm Terrace. New units will also be built at the Oleander Homes site but the type of unit has not been determined. Cedar Terrace and Magnolia Homes will be refurbished for transitional housing, should the need arise for additional transitional housing. Phase Two of the development plan includes the demolition of Cedar Terrace and Magnolia Homes upon completion of Phase One and new units will be built on these two sites. Ideally, Galveston Housing Authority would have developed 56 units of public housing, which will replace the 56 units that were damaged during the storm (Kerney-Odom, April, 200 Board Meeting, 200). Upon completion of the first two phases, GHA was set to explore the development of additional moderate and market rate units to meet the needs of working families and the community at large. However, on May 1, 200, the Galveston Housing Authority Board of Commissioners unanimously voted to eliminate Phase Three of GHA s Development Plan. Executive Director Harish Krishnarao expressed to the board that his primary concern was to bring the 56 families back to the community before he considered looking at anything else. GHA s intent is to focus on the 56 families, I have an obligation to the community and an agreement with Lone Star Legal Aid (Kerney-Odom, May 1, 200 Board Meeting, 200).

20 Hurricane Ike Rehabilitation 20 Progress has continued towards the development of new multi-family units to replace those damaged by Ike. GHA is working with the City of Galveston on submitting a proposal for $11 million in funding from HUD for construction of 100 units (Galveston Housing Authority, Notice for, 200). GHA is also working in coordination with private planning firms to prepare a master plan for three public housing sites damaged during Hurricane Ike: Oleander Homes, Cedar Terrace, and Magnolia Homes. They have scheduled several opportunities for community engagement in the planning process in Galveston and online in July (Galveston Housing Authority, Design Charrette Flier, 200). Furthermore, GHA has been authorized to bring in on contract the former GHA director, Sharon Strain to provide expertise and help oversee these multiple projects, although it is unclear as to what her contributions will be (Jones, Former Director, 200). Community Response to Rebuilding Low-Income Housing. Throughout the entire planning for rebuilding process, there has been opposition to rebuilding affordable housing on the island. Some of the loudest voices, including members of the Galveston city council, revealed extreme hostilities and deep-seated prejudices against the residents of public housing as well as other low-income Galvestonians. For example, in March 200, GHA requested $60 million of the city s Hurricane Ike relief funds to build more than 1,500 new public housing units, which is more than double the amount of units destroyed. In an article published in the Galveston Daily News on March 2, 200 about this proposal, many readers, mostly citizens of the island, were able to comment online on the content of the article 2. Many comments colorfully painted GHA residents as criminals, illegal immigrants, and welfare-vacuums. Some even lashed out against the organizations working to advocate for these distressed populations, 2 Comments were made to online article: Jones, L. (200, March 25). Housing Authority wants $60 million. The Galveston County Daily News. Retrieved on March 2, 200.

21 Hurricane Ike Rehabilitation 21 labeling Lone Star Legal Aid as a hyper-partisan activist-litigator for various and sundry entitlement-seeking special interest persons and groups. The island s economically and racially segregated patterns of development, as well as the concentration of renters on one end of the island, have contributed to a polarized discussion of rebuilding, where low income renters are poorly represented both literally and figuratively. HUD s national picture of subsidized housing provides evidence that low-income housing program participants tend to live in tracts with relatively high poverty rates. (See maps Galveston County Rent Burden, , Galveston County Percent Black, , Galveston County % Non-White, and Galveston County % Renter-Occupied Units, ). As we have shown above, these patterns are overlaid multiplicatively on patterns of environmental vulnerability. Past research by Pendall (2000) and Yinger (1) has documented the ongoing resistance to integration of housing for poor, minority residents into middle-income areas. These same dynamics appear to be present in Galveston, making discussions of use of CDBG funds for rebuilding especially charged. One result has been the retreat of the GHA from its plans to rebuild: phase 3 of the GHA s rebuilding plan has been halted. Vulnerability Analysis of Galveston Based on Cutter s Social and Environmental Vulnerability Index. In an effort to more fully understand the complex relationship and spatial characteristics between social and environmental risk, we applied a modified version of multivariable indexing and comparing based on Cutter s Social and Environmental Vulnerability Index (2000). As a geographer, Cutter researches the complex interactions between society and the environment, with emphasis on our most vulnerable populations. The Social Vulnerability Index (SoVI), an additive model based on eleven independent indices, begins to fill this gap of understanding of interaction between these two systems (Levine 200). 30 See Galveston County Rent Burden, 2000 map in the Appendix, page See Galveston County Percent Black, 2000 map in the Appendix, page See Galveston County % Non-White, 2000 map in the Appendix, page See Galveston County % Renter-Occupied Units, 2000 map in the Appendix, page 52.

22 Hurricane Ike Rehabilitation 22 Methodology. To determine the Vulnerability of Place, a comprehensive view of both social and environmental vulnerabilities, we first indexed variables that we felt characterized social vulnerability. Our data source for this analysis is the 2000 Census for Galveston County, with the geography used as census block group. Many of these are the exact variables that Cutter uses, as seen in Table 5 below, and fit the general understanding of which fundamental factors correlate to social vulnerability (Cutter et al. 2000). The one modification was the use of Median Family Income instead of Home Value, as we can more easily identify areas whose residents are low income using this measure. Table 5. Measures of Socially Vulnerable Populations in Galveston (Based on Cutter et al., 2000) Characteristic Variable Population and structure Total population Total housing units Total renter-occupied units Differential access to resources/greater Number of females susceptibility to hazards due to physical Number of nonwhite residents weakness Number of people under age 1 Number of people over age 65 Wealth or poverty Median Family Income Level of physical or structural vulnerability Number of mobile homes Each variable was standardized by determining the ratio of that variable in the block group to the figure for the county as a whole. In Table 6, for example, the number of mobile homes in each census block group was tabulated (column 1), as was the number of mobile homes in the county (column 2). The ratio of the mobile homes to the total in the county was then calculated (column 3). This value (X) was then divided by the maximum ratio value that resulted (X) to create an index from 0 to Higher index values indicate greater vulnerability (Cutter et. al. 2000).

23 Hurricane Ike Rehabilitation 23 Table 6. Example of Social Vulnerability Indicator Mobile Home Census Block # of Mobile Homes in County Mobile Home Vulnerability Index (X/X maximum) # of Mobile Homes in Block Ratio of Block to County (X) A 125 3, B 6 3, C 4 3, All other variables were standardized with this method except Median Family Income, as it is an average. In this case, the absolute value of the difference between the County Median Family Income and the MFI for that block group was used. To remove negative values, the absolute value of X was added to create Y (see Table ). An index was then created by calculating the ratio of census block group Y and overall Y. Again, higher values indicate greater vulnerability (Cutter et al. 2000). Table. Calculation of Social Vulnerability Index for Median Family Income Value Difference ($) between X + Absolute County and Value of Block (X) Maximum X Census Block Median Family Income Vulnerability Score (Absolute Value Y/Y maximum) MFI Value in Block ($) MFI Value in County ($) (Y) A 41,26 5,000 33, B 110,650 5,000-35, C 6,6 5,000-1, The components leading to hazard loss intersect to produce an overall assessment of vulnerability of Galveston. The biophysical indicator we are using focuses on hurricane damage. We are spatially evaluating the impact of the hurricane by indexing the census blocks in Galveston Island that were evaluated for new building permits after the hurricane. The damage assessment maps by FEMA and the City of Galveston (200) were overlayed with the census block groups. If, in a census block group, 50 percent or more of the area was allowed to rebuild (colors blue, gray, green), the block group was assigned a zero. If the census block

24 Hurricane Ike Rehabilitation 24 group had 50 percent or more of its area either denied a building permit (red), building permit on hold (yellow), or deemed completely destroyed (purple), the block group was assigned a one. Any block group that was not assessed at the time, or was undeveloped, was given a zero. The Social Environmental Vulnerability Score was then calculated as a product between the social vulnerability indexes and the damage assessment score (Cutter, 2000). Indexing the damage assessment score yields the same score since there are two numbers, so indexing is redundant and not necessary. This combined score was then mapped using GIS software. This, in effect, results in scores only for areas that were not allowed to rebuild (correct?). More nuanced data on environmental vulnerability would allow us to score areas that were somewhat less vulnerable to environmental damage but may be approaching this level of vulnerability. Results. The map depicting our first analysis, the computation of the Social Vulnerability Score, spatially delineates multiple social characteristics that positively correlate to high vulnerability at the census block level (see page 6). The most revealing finding from this map confirms that the most vulnerable populations live north of Broadway and west of 50 th street. The least vulnerable populations on the island tend to live close to the western side of the island, protected by the Seawall, and in the Historic Districts. These areas receive lots of attention as tourist destinations and also funding for hazard mitigation. The map depicting our second analysis, the computation of the combined Social and Environmental Vulnerability Score, spatially delineates multiple social characteristics that positively correlate to high vulnerability, along with the damage assessment data from the City of Galveston and FEMA, at the census block level (see page 6). Again, the most revealing finding from this map confirms that the most vulnerable populations, who live north of Broadway and west of 50 th street, were also the most adversely affected by the storm.

25 Hurricane Ike Rehabilitation 25 Our analysis of the vulnerability of Galveston Island residents has confirmed our preliminary statistical analysis (compound probabilities) as described beginning on page seven of this report. Furthermore, since socioeconomic information and damage assessments were incorporated into Cutter s analysis indexing, we can confidently call for immediate and urgent action on behalf of those most vulnerable residents who were disproportionately adversely affected by Hurricane Ike. IV. CASE STUDIES ON REHABILITATION OF AFFORDABLE HOUSING STOCK AFTER NATURAL DISASTERS In this section, we will review various case studies of Northridge, California (14 Earthquake), Kobe, Japan (Hanshin-Awaji 15 Earthquake), and New Orleans (2005 Hurricane Katrina), whose affordable housing stock was significantly damaged or destroyed by catastrophic natural disasters. We will more closely examine the unique challenges, whether social, political, or geographic in nature, and cull best practices from the successes and failures of their housing rehabilitation efforts. We will follow this section with planning recommendations based on these best practices observed from these case studies and our research of Galveston Island for our community. THE NORTHRIDGE EARTHQUAKE OF 14 The Northridge Earthquake hit the Los Angeles area on January 1, 14 with a 6. on the Richter Scale. The earthquake killed only 5 people and 1,500 admitted to a hospital with about 16,000 victims treated and released. It was estimated that anywhere from 0,000 to 120,000 people were displaced from around 65,000 damaged or destroyed homes (Wu and Lindell, 2004). With only a few minor setbacks, the response mechanisms were activated and local, state, and federal agencies rose to the task (Kamel and Loukaitou-Sideris, 2004).