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LESSONS LEARNED from IRENE Climate Change, Federal Disaster Relief, and Barriers to Adaptive Reconstruction

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LESSONS LEARNED from IRENE Climate Change, Federal Disaster Relief, and Barriers to Adaptive Reconstruction ! GEORGETOWN CLIMATE CENTER A Leading! Resource for State and Federal Policy LESSONS LEARNED FROM IRENE Climate Change, Federal Disaster Relief, and Barriers to Adaptive Reconstruction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Irene dumped more than 7 inches of rain on the state over the course of two days, which washed out hundreds of miles of roads and bridges. In the aftermath of the disaster, Vermont set about rebuilding its roads and bridges to higher state standards, but encountered legal barriers when FEMA initially refused to reimburse communities for the added costs. Vermont’s standards required that culverts be designed to accommodate additional streamflow and to minimize impacts to aquatic species; permits are issued based upon a site-specific analysis. Requiring culverts to be upgraded will increase the resilience of roads and bridges because they will be less likely to be washed out in extreme rain events, which are projected to increase for the state under climate change scenarios. FEMA, however, initially denied reimbursement arguing that the state standards for rebuilding culverts provided state regulators with too much discretion and thus did not comply with FEMA requirements that standards be “uniform.” The state appealed the decision and ultimately FEMA allowed one locality to be reimbursed and is considering the appeals of other localities. We use this story of the Vermont appeal to highlight some of the challenges that states and localities face in trying to adapt to climate changes when rebuilding differently after natural disaster. ! ! ! !! ! !"##$%#&!"'(%")&*($+&,-((./'%"&0("%"& 1"/"+2"(&3456&& ! ='2>"&$*&?$%9"%9#& O/! 0%9($)-/9.$%@&&?A($%$>$B<&$*&7:"%9#!////////////////////////////////////////////////////////////////////////////////////////////////////!>! OO/! ?>.+'9"&?A'%B"C&;9("'+&D>9"('9.$%&E"(+.9#C&'%)&9A"&F"#G$%#"&9$&0("%"!///////////////////////////////////////////!J! H/! B78N5'%!*'4!()&N*%7!(3*'97!//////////////////////////////////////////////////////////////////////////////////////////////////////////!J! G/! C%87*N!H)%78*%&5'!*'4!R78N&%%&'9!////////////////////////////////////////////////////////////////////////////////////////////////////!J! OOO/! H")"('>&1.#'#9"(&F">."*!//////////////////////////////////////////////////////////////////////////////////////////////////////////////////////////!d! H/! \37!C%*DD584!H+%Y$!R#Z)&+!H$$&$%*'+7!R8598*N!/////////////////////////////////////////////////////////////////////////////////!d! G/! \37!A&$M#%7![;78!Q7&NZ#8$7N7'%!*'4!%37!:)%&N*%7!(5NM85N&$7!/////////////////////////////////////////////////!E! OB/! !"B'>C&F"B->'9$(<C&'%)&E$>./<&;$>-9.$%#!/////////////////////////////////////////////////////////////////////////////////////////////!>>! B/! ?$+G'(.#$%&9$&9A"&H")"('>I'.)&,.BAJ'<&D/9&7+"(B"%/<&F">."*&E($B('+!/////////////////////////////////////////!><! BO/! !"##$%#&!"'(%")!//////////////////////////////////////////////////////////////////////////////////////////////////////////////////////////////////!>J! BOO/!?$%/>-#.$%!//////////////////////////////////////////////////////////////////////////////////////////////////////////////////////////////////////////!>d! ! ! ! ! !! ! !"##$%#&!"'(%")&*($+&,-((./'%"&0("%"& 1"/"+2"(&3456&& 0K 0%9($)-/9.$%@&&?A($%$>$B<&$*&7:"%9#& On August 28, 2011, Hurricane Irene swept up the coast of the Northeastern United States and made landfall in New York. When the storm hit the Atlantic seaboard it was downgraded to a tropical storm, but still had a devastating impact on the region. Image 1: Irene’s Impacts to Infrastructure Winds exceeded 40 miles per hour (mph) as Irene crawled slowly across Vermont and upstate New York dumping torrential rains. In a period of two days, Irene unloaded a staggering 7 inches of rainfall in areas of both states.1 Saturated soil and the steep topography of Vermont funneled the rainwater down cascading hills into valleys. Heavy rain combined with years of human alteration of the waterbodies at the base of those valleys lead to catastrophic flooding of historic proportions across the state.2 The impact of the storm on the small communities of Vermont, most of which were ! located along the banks of the many streams and rivers that flow throughout the state, was devastating: 225 of Vermont’s 246 municipalities incurred significant damage. Six deaths were attributed to the storm in Vermont alone. Thirteen communities were completely cut off from the rest of the state, with no passable roads in or out of town, relying on National Guard helicopter airlifts to ferry critical supplies until bridge access could be restored.3 More than 1,500 residences sustained severe damage, directly affecting over 7,000 people. Over 73,000 homes lost power, some for almost a week. Twenty ! thousand acres of farmland were inundated. 8$*'*)9$%#%')'$%-)#$*)7*:3'#3#1%.)#$3#);&*.*)53"'*7)#%) Water supplies were contaminated by <*&2%.#4')#&3.'9%&#3#1%.)1.=&3'#&"5#"&*>))8$*)'#%&2*7)-3'$*7) %"#)(&17,*')3.7)(0*-)%"#)5"0:*&#')35&%'')#$*)'#3#*>)) floodwaters; sewage treatment facilities were /&*71#?)<*&2%.#)!,*.5@)%=)A3#"&30)B*'%"&5*'C<*&2%.#)!,*.5@) %=)8&3.'9%&#3#1%.) ) !!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! 1 National Weather Service, Burlington, VT (August 30, 2011). 2 See, New York Times, Storm’s Push North Leaves Punishing Inland Floods (August 29, 2011), http://www.nytimes.com/2011/08/30/us/30vermont.html?pagewanted=all&_r=3&; Associated Press, Helicopters Rush Food, Water to Vermont Towns Cut-Off by Irene Floods (August 30, 2011), http://www.masslive.com/news/index.ssf/2011/08/helicopters_rush_food_water_to.html; and Municipal Guide to Fluvial Erosion Hazard Mitigation, Vermont Agency of Natural Resources, River Management Program (2010).
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