Hazard Mitigation Plan THE EASTERN SHORE OF VIRGINIA Eastern Shore Hazard Mitigation Planning Committee Accomack-Northampton Planning District Commission THE EASTERN SHORE OF VIRGINIA Hazard Mitigation Plan Accomack-Northampton Planning District Commission P.O. Box 417, 23372 Front Street, Accomac, Virginia 23301 Phone 757.787.2936 • Fax 757.787.4221 Introduction Since the 1960s, Congress and the President have been under increasing pressure to organize resources for the nation during large disasters. The government has increasingly turned its attention to the federal response to these types of disasters. In the 1960s, the government created the National Flood Insurance Program to shift some of the costs to those who choose to live in the areas of most risk. In the 1970s, the Federal Emergency Management Agency (FEMA) was created to centralize a great deal of the assistance the federal government offers to states in emergency situations. In the 80s, the Stafford Act was passed to standardize the federal response and to institute programs to decrease the United States’ vulnerability to disasters. In the early ‘90s, the National Flood Insurance Program was reformed to increase the participation of those most at risk to flooding. Still, disaster assistance costs mounted and the late ‘80s and early ‘90s saw some of the largest disasters the country has ever experienced. This included multiple billion dollar events such as Hurricane Hugo, the Loma Prieta Earthquake, the Northridge Earthquake, Oakland wildfire, the Midwest Floods of 1993, Hurricane Andrew and Hurricane Iniki (Planning for Post-Disaster Recovery and Reconstruction, 1998). In October 2000, the United States Congress passed an amendment to the Stafford Act called the Disaster Mitigation Act of 2000. This act seeks to protect lives and property and to reduce disaster assistance costs by mitigation, sustained actions to reduce long-term risk. FEMA has since written regulations based on this act. Local governments are required to complete a Hazard Mitigation Plan to continue to receive certain types of disaster assistance. In spring of 2003, the Virginia Department of Emergency Management asked the counties of the Eastern Shore and the Accomack-Northampton Planning District Commission (PDC) to undertake this work and directed the PDC to apply for a Pre-disaster mitigation grant to finance the planning process. In the beginning of this planning process, Virginia had its own billion dollar event, Hurricane Isabel. This event and a preceding event, Hurricane Floyd in 1999, highlighted the need to complete the Eastern Shore’s plan. The counties have diligently worked to fulfill the letter and spirit of this law. The following information is presented to address the requirements of the Disaster Mitigation Act of 2000. Table of Contents Introduction i CHAPTER 1 CHAPTER 6 HAZARDS ON THE SHORE HIGH WIND Chronology of Hazard Events on the Shore 1 Hazard 37 1564-1799 1 Damages 38 The 19th Century 2 Vulnerability 39 The 20th Century 2 The 21st Century 6 CHAPTER 7 Description of Conditions 6 COASTAL EROSION Hazard 41 CHAPTER 2 Damages 42 BRIEF DESCRIPTION OF RISK 8 Vulnerability 42 Definitions of Hazards on Eastern Shore 10 Risk Descriptions 12 CHAPTER 8 ACCOMACK COUNTY CHAPTER 3 History 44 PLANNING PROCESS 13 Coastal and Storm Water Flooding 44 NFIP Community Participation 45 CHAPTER 4 HMGP Participation 48 COASTAL FLOODING High Wind Events 48 Hazard 16 Coastal Erosion 49 Damages 22 Other Local Hazards 50 Vulnerability 24 Critical Facilities 50 Review 51 CHAPTER 5 Trends 52 STORM WATER FLOODING Findings 52 Hazard 30 Damages 34 Vulnerability 36 Critical Facilities 78 CHAPTER 9 Review 79 TOWN OF CHINCOTEAGUE Trends 79 History 54 Findings 79 Coastal and Storm Water Flooding 54 NFIP Community Participation 58 CHAPTER 12 HMGP Participation 58 TOWN OF WACHAPREAGUE High Wind Events 58 History 80 Coastal Erosion 59 Coastal and Storm Water Flooding 80 Other Local Hazards 59 NFIP Community Participation 83 Critical Facilities 60 HMGP Participation 83 Review 61 High Wind Events 83 Trends 61 Coastal Erosion 83 Findings 61 Other Local Hazards 83 Critical Facilities 84 CHAPTER 10 Review 84 TOWN OF SAXIS Trends 85 History 63 Findings 85 Coastal and Storm Water Flooding 63 NFIP Community Participation 66 CHAPTER 13 HMGP Participation 66 TOWN OF ONANCOCK High Wind Events 67 History 87 Coastal Erosion 67 Coastal and Storm Water Flooding 87 Other Local Hazards 67 NFIP Community Participation 88 Critical Facilities 67 HMGP Participation 88 Review 69 High Wind Events 88 Trends 70 Coastal Erosion 89 Findings 70 Other Local Hazards 89 Critical Facilities 89 CHAPTER 11 Review 89 TOWN OF TANGIER Trends 90 History 72 Findings 90 Coastal and Storm Water Flooding 72 NFIP Community Participation 75 HMGP Participation 76 High Wind Events 76 Coastal Erosion 76 Other Local Hazards 77 CHAPTER 14 CHAPTER 16 NORTHAMPTON COUNTY STRATEGIES DEVELOPMENT History 91 Vision Statement 109 Coastal and Storm Water Flooding 91 Goal Development 109 NFIP Community Participation 93 Identified Issues 110 HMGP Participation 94 Goals and Projects 111 High Wind Events 94 Adoption 111 Coastal Erosion 94 Regional Projects 111 Other Local Hazards 95 Critical Facilities 96 CHAPTER 17 Review 97 ACCOMACK COUNTY Trends 98 Project Prioritization 112 Findings 98 Plan Maintenance 113 Identified Mitigation Projects 113 CHAPTER 15 TOWN OF CAPE CHARLES CHAPTER 18 History 100 NORTHAMPTON COUNTY Coastal and Storm Water Flooding 100 Project Prioritization 118 NFIP Community Participation 101 Plan Maintenance 119 HMGP Participation 102 Identified Mitigation Projects 119 High Wind Events 102 Coastal Erosion 102 CHAPTER 19 Other Local Hazards 103 TOWN OF CHINCOTEAGUE Critical Facilities 103 Project Prioritization 123 Review 104 Plan Maintenance 123 Trends 106 Identified Mitigation Projects 124 Findings 107 APPENDIX Town and County Maps EASTERN SHORE OF VIRGINIA HAZARD MITIGATION PLAN Chapter 1 Hazards on the Shore he Great September Gust of 1821 was for much of the Eastern Shore the worst disaster ever experienced in recorded history. T This hurricane caused an ocean recession in the vicinity of the Island of Chincoteague. Although not completely understood it is believed that the hurricane may have triggered a landslide on the continental slope causing a tsunami in tandem with the force of the hurricane. This destroyed so many homes it is unlikely that any of the homes standing today predate this event. In fact, two of the oldest homes on the island were probably erected to replace destroyed houses. (Once Upon an Island, Kirk Mariner) Cold snaps, wildfires, and high coastal winds have also caused substantial damage to the communities on the Shore. These events have destroyed property, caused extended isolation of communities where provisions such as fuel and food have grown thin and at several times whole industries have been wiped out or dealt such a heavy blow that months or years were necessary to recover. Chronology of Hazard Events on the Shore 1564-1799 Virginia was affected by great storms throughout the 16th, 17th and 18th centuries. Shipwrecks caused some 16th century storms to be recorded. The first of these storms occurred in 1564. Others followed in June 1566, June 1586, August 1587 and August 1591. The June 1586 storm dropped hail and caused waterspouts to threaten Sir Francis Drake’s crew. In October 1703, an early snowstorm heralded the arrival of a hurricane just days later. The September 1667 hurricane, called the Dreadful Hurricane 1 EASTERN SHORE OF VIRGINIA HAZARD MITIGATION PLAN of 1667, was a great storm that destroyed many homes in Virginia. From the records this hurricane and a July 1788 hurricane may have followed a similar track to the 1933 hurricane, which caused massive devastation on the Eastern Shore. Twelve days of rain accompanied the storm, potentially indicating a second storm skirting the coast. The October 1749 storm was a great disaster for Virginians. Besides starting Willoughby Spit in Norfolk, the storm flooded the City of Hampton with four feet of water and bodies from shipwrecks washed up for days after the storm. (Virginia Hurricanes, VDEM) The 19th Century After the Great September Gust of 1821, hurricanes and other storms swept up the Virginia coast. The residents of Smith Island reported to Second Lieutenant Robert E. Lee that the April Gale in 1831 nearly covered all of Smith Island with seawater. The October 1878 hurricane completely inundated Smith and Cobb Islands located in Northampton County. The April 1889 storm came from the east and inundated the Island of Tangier for 48 hours. During January 1893, the Eastern Shore suffered extreme cold, the Town of Accomac had 14 inches of snow and men could walk from Chesconessex to Watts Island. (Seashore Chronicles, Brooks Miles Barnes & Barry R. Truitt) The 20th Century Major storms have continued to strike the Eastern Shore throughout the 20th century. The century started with three relatively quiet decades after the tremendous damages that occurred during the 1890s. The 1930s would change that trend. The Chesapeake-Potomac Hurricane of 1933, also called the August storm, wreaked much havoc on the various communities on the Eastern Shore. The sea broke over Assateague Island in 25 foot waves. On Chincoteague, Main Street was flooded. (The Great Hurricane of 1933, Assateague Naturalist, www.assateague.com) On the Eastern Shore, 6 people died. Much of Tangier Island was inundated and children jumped from second floor windows to swim. When the water receded parts of the island were gone. (God’s Island: The History of Tangier, Kirk Mariner) In addition, the towns of Cape Charles, Chincoteague, Wachapreague and villages of Willis Wharf and Kiptopeke all were 2 EASTERN SHORE OF VIRGINIA HAZARD MITIGATION PLAN flooded. In September, another hurricane followed causing more damage. The September 1936 hurricane caused heavy damage to agriculture and aquaculture. Oyster beds were damaged. Late crops were destroyed and some 60,000 broiler chickens were killed.