Social vulnerability and participation in disaster recovery decisions: public housing in Galveston after Hurricane Ike

Abstract

Hurricane Ike caused massive damages to Galveston Island's residential structures including four public housing developments in September 2008. These developments were located in neighborhoods with some of the lowest incomes and highest percentages of people of color on the Island. Four months later the Galveston Housing Authority (GHA) decided to demolish all four developments consisting of 569 housing units due to the damages to the buildings. Today, despite federal regulations requiring reconstruction, court orders mandating replacement of the demolished units, and available funding, only 142 low income apartments have been rebuilt. We used the social vulnerability framework to understand these outcomes through the ability of groups to shape post-disaster recovery decisions. This paper argues that one of the overlooked characteristic of social vulnerability is a diminished ability to participate in post-disaster decision-making. There were few local advocates arguing for the preservation of public housing units and even fewer remaining residents to speak up for themselves in the face of strong local resistance to the reconstruction of public housing units or the return of public housing residents.The void of a strong and authentic local pro-public housing perspective in Galveston provided an opening for various local campaigns to claim that their desired plan benefitted the poor. The disaster recovery became an opportunity to remove or reduce public housing units and therefore, public housing residents.

Opportunities and Challenges of Public Participation in Post-Disaster Recovery Planning: Lessons from Galveston, TX

“…Therefore, public engagement outreach strategies after the disaster should include a wide geographic range where displaced residents would be staying temporarily. Other research has also shown that disparities in displacement and other recovery challenges persist months or even years after the disaster Hamideh and Rongerude 2018;Dash et al 1997); therefore, support to engage the displaced must be provided over a longer period by maintaining contact with these residents and advocacy groups that serve them by using online platforms along with in-person and representative engagement methods.…”

“…For example, while engagement of various stakeholders in recovery would increase the opportunities to build resilience (Crawford et al 2013), one of the challenges of ensuring diversity in participatory recovery planning is engaging marginalized groups in the same conversations with powerful stakeholders. Disadvantaged communities have limited access to political power before disasters and often face even more significant barriers to participating in public recovery dialogues in the aftermath (Hamideh and Rongerude 2018). When compared to their more affluent neighbors, low-income households face greater rates of post-disaster displacement (Fothergill and Peek 2004).…”

“…When compared to their more affluent neighbors, low-income households face greater rates of post-disaster displacement (Fothergill and Peek 2004). Prolonged displacement of these residents outside their communities further limits their ability to participate in open forums about recovery (Hamideh and Rongerude 2018).…”

“…Some of the most heavily damaged neighborhoods in the urban core remained partially abandoned months and even years after Ike because owners did not have the means to return and start recovering their properties. This loss of affordable housing displaced many low-income residents, especially people of color (Hamideh and Rongerude 2018;Reece et al 2011). Hence a majority of the severely affected households who were also among the socially vulnerable residents were not in Galveston during the GCRC formation period.…”

Social Vulnerability Factors and Reported Post-Disaster Needs in the Aftermath of Hurricane Florence

“…Furthermore, Peacock and Girard ( 1997 ) assert that economically and socially disadvantaged individuals are more likely to reside in housing that is substandard and are at a greater risk of being damaged from a disaster event. Hamideh and Rongerude ( 2018 ) cite income as a determinant of an individual’s level of participation in post-disaster recovery decision making. Building off of that insight, Ogie and Pradhan ( 2019 ) describe the multiple dimensions of social vulnerability that are influenced by the income factor.…”