Turning the tide toward equity: improving federal flood programs to serve marginalized populations
In the United States, 99% of counties experienced at least one flooding event in the last 25 years. However, flood waters do not impact all people equally.
In this three-part series, the American Flood Coalition examines inequity in flooding and disaster recovery policies, creating a framework for nearly a dozen modifications that would improve outcomes for all Americans. Our second post explores the implications of federal programs on renters, unbanked populations, and non-English speakers. Read our first post about program eligibility and our final installment on application complexity.
Renters, unbanked populations, and non-English speakers fall through the cracks
Without specific procedures to address the many forms of insecurity that arise after disasters, government assistance fails to meet the needs of many affected populations. Below are four procedural opportunities for improvement.
Disaster recovery spending favors homeowners over renters. Disaster recovery dollars tend to disproportionately flow to homeowners rather than renters, although both are eligible for individual and household assistance. Renters are twice as likely to be minorities and are less likely than homeowners to be financially secure (46% of renters report having trouble paying for basic needs compared to 36% of owners). In New Jersey, 40% of homes damaged by Hurricane Sandy were renter occupied, but tenants only received 25% of the assistance dedicated to the state (though this aid program was eventually modified, increasing that number to 33%). Congress does not provide direction on how to allocate funds equitably among homeowners, renters, and the homeless population. The Government Accountability Office (GAO) recommended in 2010 that Congress provide more direction on this split, given the skew toward homeowners.
Insufficient direct housing services and rental assistance put low-income renters at risk of displacement. While individuals wait for home repair funds, buyout approval, or permanent relocation, they need ample monetary and social resources to find adequate interim housing. As rents rise and replacement housing is slow to be built, disasters can lead to shortages in affordable rental housing. After Hurricane Harvey, some ZIP codes in Greater Houston experienced rent increases of 50%, putting already-displaced people at increased risk of eviction and displacement or homelessness. FEMA rental assistance and direct housing services did not fully meet residents’ needs with nearly 50% of area residents reportedly facing significant financial or housing-related challenges three months after Harvey. To recover after disasters, low-income households deserve affordable rental housing rebuilt in a timely manner, as well as sufficient rental assistance to cover immediate living expenses.
FEMA Transitional Housing Assistance requires grantees to have credit cards. To use FEMA Transitional Shelter Assistance (TSA) funds, which pay for people to stay in hotels if their homes remain uninhabitable for a prolonged period of time, grantees must put down a credit card to cover incidental expenses. This precludes lower-income people from using these funds, as 26% of the poorest fifth of Americans do not have a bank account, compared to 7% of the total population.
Disasters can set off a chain reaction by causing people with lower credit scores, an attribute correlated with low income levels, to lose access to credit, making them ineligible to receive TSA funds. People with pre-disaster credit scores below 650 are 4.5% less likely to have access to credit within a year after a disaster because they miss bills or are evicted. Responding to this crisis, some groups suggest activating the Disaster Housing Assistance Program (DHAP), which was created in response to Hurricane Katrina. Unlike TSA, DHAP provides temporary rental assistance and wraparound case management and is, therefore, more accessible to lower-income individuals. Whatever the solution, changes to FEMA procedures could ensure that unbanked Americans aren’t left behind after disasters.
On-the-ground FEMA survivor assistance can favor English-speaking residents. After disasters, FEMA Disaster Survivor Assistance crews go door-to-door in the hardest hit areas, answering residents’ questions and helping them apply for assistance. To determine which crew members to send, FEMA relies on Census data on languages spoken in the affected areas. This leads to several problems. Potential Census respondents who are not proficient in English are more likely to be concerned that their answers are not confidential or will be used against them. Census data collection can also be interrupted in regions hit by hurricanes, as happened in Texas, Florida, and Puerto Rico following the 2017 hurricane season. Both of these situations can lead to unreliable data in Census reports. Because of low Census response rates by Hispanics and people not proficient in English, this method can lead to a shortage of personnel who speak the necessary languages besides English, disproportionately hindering recovery for immigrant communities and communities of color.
These hindrances played out after the Great June Flood of 2018. FEMA sent too few Spanish-speaking workers to the Rio Grande Valley of Southern Texas, where, in some counties, 85% of residents do not speak English at home. Recognizing that this could put Spanish speakers at a disadvantage, members of Congress requested that FEMA send more Spanish-speaking personnel. Comprehensive disaster recovery must take into account diverse language needs in affected areas.
Procedural gaps in federal disaster aid mean that non-English speakers, unbanked populations, and renters are not sufficiently supported. The recommendations above highlight opportunities for federal agencies to build inclusive procedures that create a more equitable environment.
Read the final post in the series, which offers solutions that simplify the process of applying for federal aid.
This post was authored by Jasmine Butler, Winter Strategy and Outreach Intern, Summer Modelfino, Senior Strategy Associate, and Caroline Resor, Strategy Associate. It was reviewed by Senior Advisors Chauncia Willis, social equity and disaster recovery expert, and Joyce Coffee, climate adaptation specialist.
The American Flood Coalition is a nonpartisan group of cities, elected officials, military leaders, businesses, and civic groups that have come together to drive adaptation to the reality of higher seas, stronger storms, and more frequent flooding through national solutions that support flood-affected communities and protect our nation’s residents, economy, and military installations. The Coalition has over 200 members across 17 states.
Cities, towns, elected officials, businesses, and local leaders wishing to join the American Flood Coalition or read more about the organization’s work can visit the Coalition’s website (floodcoalition.org) to find out more.
