Disaster Impact and Needs Assessment 

The impact of Hurricanes Katrina and Rita were significant.  The following discussion reveals the overall impact of the storm from not only wind and rain, but the extensive flooding as well for Orleans Parish.  The data supplied is provided by a series of studies conducted from after the storm until April of 2006.  It should be noted that some information is not yet available due to lack of residents to the city and the limited capacity of the city government.  More information will be supplied as it becomes available.  
 
Community Development and Housing

Population and Impacts

Within a 100 mile area along the gulf coast, Hurricane Katrina’s damage due to high winds and storm surges resulted in significant devastation, but flooding, largely resulting from breached levees and flood walls, affected the greatest number of people.  As much as 80% of the streets of New Orleans flooded impacting 77% of the city’s population (FEMA 2/11/2006).  Initially after the storm, the city was completely evacuated.  Residents began to return in late September. In February 2006 it was estimated that approximately 181,400 (out of approximately 484,000) people were living in Orleans Parish (Louisiana DHH Bureau of Primary Care and Rural Health 2/2006).  It is anticipated that a little over half of the pre- hurricane population will be living in New Orleans by 2008 (Bureau of Governmental Research). 

City Finances

Given the population loss of the city, city finances have been compromised.  General fund figures for 2005 shows city revenues at $375 million while for 2006, general fund revenues are expected to be $186 million, or a decrease of 50%.  In addition, tax collection for the city is anticipated to decline by 58% falling from $260 million in 2005 to $109 million in 2006.  Projections for 2007 show a $138 million deficit for the fiscal year.  Total debt for the city is anticipated to be almost $1 billion by the end of 2006 (Bureau of Governmental Affairs and Public Research Council of Louisiana).

Housing

Pre-disaster, there were approximately 180,382 homes occupied in Orleans Parish, according to the Department of Housing.   An estimated 55% of households were owner occupied pre-Katrina and had lived in their units for twenty years or more (Census 2000).   According to the U.S. Department of Housing and Urban Development, 44,040 owner occupied homes were severely damaged or destroyed from flooding and/or winds. Concurrently, 78,810 rental units were destroyed or severely damaged as well.  In terms of minor damage, 22,569 owner occupied homes and 55,534 rental units were impacted.  Lastly, approximately 66,600 owner occupied housing units were damaged by the storm and of this number, 16% did not have flood insurance. In terms of rebuilding, approximately 16,000 permits have been issued by City Hall as of March 2006.  Rebuilding efforts are taking place throughout the city; however, the most impacted areas have slow housing recovery such as Lakeview, Gentilly, New Orleans East, and the Lower Ninth Ward.
(For a complete table, click here).

One of the most recognizable aspects of Orleans Parish is its historic properties.  Storm damage impacted an estimated 25,000 historic properties, according to a Bring New Orleans Back (BNOB) Urban Planning Committee report.  Further, at least ten of the City’s twenty-nine historic districts encompassing half of the parish have suffered extensive flooding.  A survey conducted by the Historic District Landmarks Commission found 115 buildings in seven historic districts seriously damaged and more than 56 were compromised.  However, at this time, a complete survey of the 38,000 historic districts properties has not been undertaken. 

Flood Recovery Guidance

Advisory Base Flood Elevations (ABFE) for Orleans Parish were issued by FEMA in April 2006.  Assessing flood hazards in Orleans Parish is challenging due to the existence of numerous flood control facilities. These facilities experienced damage of varying degrees throughout southeastern Louisiana as a result of Hurricanes Katrina and Rita, and the U.S. Army Corps of Engineers (USACE) is on an aggressive path to repair and improve the flood control system. The USACE is on schedule to have repairs to damaged areas completed by June 2006, to have all federal levees constructed to authorized heights by September 2007, and to have fully authorized levels of protection and improvements to the system completed by 2010. Although USACE improvements to the flood control system will make Orleans Parish safer than it was before the storms, they will not eliminate the potential for flooding. In fact, based on analyses recently completed by the USACE, the flood control system will not meet the standards necessary for providing protection against the 1% annual chance (100-year) flood, which is also referred to as the base flood. The National Flood Insurance Program (NFIP) uses the base flood as the standard for floodplain management.

FEMA and the USACE have worked together to develop flood hazard data and formulate recommendations to be considered by State and local governments as they begin to make recovery decisions. For areas in the Parish located within existing levees, FEMA has determined that eventual levee certification is likely. FEMA recommends the following: new construction and substantially damaged homes and businesses within a designated FEMA floodplain should be elevated to either the Base Flood Elevation (BFE) shown on the current effective Flood Insurance Rate Map (FIRM) or at least three feet above the highest adjacent existing ground elevation at the building site, whichever is higher; and new construction and substantially damaged homes and businesses not located in a designated FEMA floodplain should be elevated at least three feet above the highest adjacent existing ground elevation at the building site.

In addition to the recent USACE storm surge modeling, FEMA has also developed these recommendations based on the height and integrity of the levee system expected to be in place by September 2007. Although FEMA is confident in the results from this current assessment, the agency will continue to monitor progress made with regard to levee improvements, findings from other ongoing studies, and enhancements to the agency’s understanding of the probability of flooding in this area. FEMA will adjust the recommended flood elevations as necessary as the agency prepares updated FIRMs for Orleans Parish and its incorporated areas.

A FEMA coastal model study of hurricane storm surge flooding and levee flood protection is already underway at USACE, and FEMA intends to have an updated preliminary Flood Insurance Study (FIS) and updated FIRMs for coastal areas of Orleans Parish.

Although the information provided here is advisory, communities should consider its use for rebuilding in a safer manner. For additional information, community officials, residents, and other interested parties can access the FEMA website for these flood recovery advisories or the Louisiana website.

Economic Development

Based on the Bureau of Labor Statistics’ findings, the New Orleans metropolitan area experienced a 30% reduction in the civilian workforce between December 2004 and December 2005.  A sub-set within this finding is the severe workforce reduction in local government services at the City of New Orleans, a finding, in part, directly linked to housing shortages.  In total the City of New Orleans has laid off 3,000 classified and unclassified workers post-disaster (Bureau of Governmental Research and Public Affairs Research Council of Louisiana). 

According to the Bring New Orleans Back Commission Economic Development Plan, only 70% of businesses in the region are operating post-disaster.  It is unknown at this time how many of those displaced businesses will relocate to the region and New Orleans in particular.  In its Canal Street Improvement Plan, the Downtown Development District (DDD) proposed to improve office space occupancy rates in the DDD pre-disaster; however, the need probably exists in the Central Business District (CBD) in its entirety, especially in light of the post-disaster recovery efforts.  By improving occupancy rates, the city may also be able to capitalize on highest and best use opportunities in residential development.

The Bio-medical community accounted for 72,555 jobs in the region pre-disaster.  Post-disaster, the bio-medical community is operating at 40% of its pre-storm level.   Tulane University cut an estimated 180 jobs at its Medical School, which is currently housed at Baylor University in Houston until July 2006.  The BNOB Healthcare Report referenced the need to identify staffing demands for both primary care and subspecialties; to satisfy these demands, the report further referenced the need to create incentives for healthcare professionals to work in Orleans Parish.

Hospitality accounted for 15% of total local employment and generated $5 to $8 billion in gross revenue annually, which accounted for 30% of local tax revenues (Bring New Orleans Back Economic Development Report and the State’s Tourism Office).  Post-disaster, there has been a significant reduction in tourism activities with a direct impact on restaurant and hotel sales.  In 2004 the New Orleans Convention & Visitor’s Bureau reported that it hosted 953 conventions.  As of July 2005, there had been 885 conventions.  Presently, the Conventions Bureau has booked only 206 convention meetings in New Orleans for the year 2006; the projections decline for year 2007, 2008 and 2009 with 138, 88 and 54 meetings currently booked, respectively.

The Conventions Bureau reports a parallel economic decline in the hotel industry with the decline in convention bookings.  In addition, the number of hotel rooms has also shrunk dramatically post-disaster.  Prior to Hurricane Katrina, there were 38,364 hotel rooms in the New Orleans metropolitan area; only 22,100 rooms are currently available.  In the downtown area of New Orleans alone, there were 24,000 hotel rooms pre-disaster; only 16,400 hotel rooms in downtown are available post-disaster.  The number of operating hotels available pre- and post disaster are 140 and 90, respectively.  Of that total, 119 hotels were in downtown New Orleans and 29 have been closed.  The Downtown Development District reports that the Ritz Carlton (450 rooms), Fairmont (900 rooms) and Hyatt (1,000 rooms), three of the largest operating hotels, are closed until late 2006 or early 2007.

 An anticipated 170 of the total 360 full-time jobs at the Convention Center will likely be lost post-disaster.  The Convention Center reopened on April 1, 2006, which will begin to have a direct, positive impact on local airports, hotels, restaurants and economic benefits.

According to the Bring New Orleans Back Economic Development analysis, the Cultural Economy accounted for 11% of all jobs in New Orleans and has a direct impact on the hospitality industry.  The Film Industry was an emerging economic driver pre-disaster and had recently added 1,000 jobs to the New Orleans economy.  

The New Orleans Downtown Development District (DDD) included in its Canal Street Improvement Plan the creation of an Entertainment District to serve as a rebirth of cultural activity in New Orleans and as a supplemental revenue source for both the hospitality and tourism industries.  The proposed Entertainment District comprises a five block area near the intersection of Canal and Basin Streets with 625,740 sq. ft. of space, including upper and ground levels.  The economic impact of the proposed Entertainment District has not yet been determined, but the DDD has identified 110,000 square feet of available ground floor space for new restaurants, night clubs, museums, retail and other entertainment uses.  In addition there is over 160,000 square feet of upper level space that can be converted for supporting functions such as administrative offices or adapted to residential or hotel occupancy.

Transportation and Infrastructure

Streets and Bridges

Due to the heavy weight and the duration of the flooding throughout the parish, many roads and utilities were damaged.  Up to 80% of the streets were underwater for up to two weeks in some areas requiring significant repair.  In addition, military trucks and debris removal and construction vehicles have further damaged many parish streets.  Some streets, such as Downman Road, remained submerged up to six feet for up to two weeks. 

Many bridges were also damaged by the storm making some of them impassable for more than a month after the hurricane.  The bridge between New Orleans East and Slidell was severely damaged where most of the bridge was removed from its foundation, but it was repaired within a month of the storm.  The Louisiana Department of Transportation reported that the Almonaster Bridge, which spans over the Industrial Canal, was damaged from the storm raising questions as to its ability to be traversed safely. 

Port of New Orleans

Post-disaster there has been a severe reduction in port activity resulting from damage to Mississippi River Gulf Outlet (MRGO); the Port of New Orleans is also experiencing competitive threats from Port of Houston and Port of Mobile.  The estimated damage at the Port of New Orleans is $400 million.   Because of the damage at the port, the number of vessels dropped from 1,189 in August 2005 to 178 in November of the same year resulting in a loss of tonnage from 19 million to three million, according to the Port Authority of New Orleans.   However, according to the Office of the Federal Coordinator, the port is operating at its pre-Katrina status despite the fact that only 85% of its workers have returned.  In addition, navigational depth of MRGO was reduced from 36 feet to 22 feet post-Katrina.  Thus far, Congress has suspended operations for up to 18 months wherein businesses along the canal have suffered significant business setbacks.

Mass Transit

Flooding in Orleans Parish resulted in the loss of 197 buses and 31 streetcars, according to the Regional Transit Authority (RTA).  Coupled with facility damage, it is projected that damage estimates for the RTA is up to $770 million.  Further, the St. Charles streetcars, which are a significant tourism attraction, are not expected to operate completely until 2007; however, the Canal Streetcar line is currently operational. 

Utilities

Immediately after Katrina, most of the city’s utilities were inoperable.  Water, sewage, electricity, and gas services were not available in non-flooded areas for several weeks. For those areas with flooding,   most of the sewage and water facilities along with electric and gas lines were damaged according to the Sewerage and Water Board and Entergy. In November 2005, non-flooded areas had restored utilities and open gas stations, according to FEMA.  But, in those areas with flooding, services were intermittent with the hardest hit regions havinf no infrastructure support. By February 2006, a majority of the city was provided with sewage and water, electricity, gas stations, and natural gas service. But, New Orleans East and the Lower Ninth Ward remain without utilities as of April 2006 (FEMA 4/2006). 

In addition to public utilities, pumping stations were also impacted by the flood wherein equipment was damaged.  Further, according to the Sewerage and Water Board, many of the sewer lines in the city suffered as a result of the pressure of standing water and their integrity remains questionable.

Flood Protection and Coastal Restoration

After Katrina, 60% of the levees and floodwalls systems were weakened or breached and 48% (34 of 71) pumping stations were damaged.  The Army Corps of Engineers have undertaken improvements, and according to the Office of the Federal Coordinator, most of the contracts (55 of 61) awarded for levee rebuilding have gone to New Orleans.   Additionally, the storm accelerated erosion rates outside of the levee system, especially in areas in New Orleans East, thus impacting wildlife and storm surge protection for the future.  For more information, click here.
 
Environmental Management

Given the extensive flooding throughout the Parish, the local environment was impacted not only by salt water but also chemicals found in the floodwaters.  The EPA and the Louisiana Department of Environmental Quality conducted water and soil samples after the flood to determine if there were contaminants present that might pose a risk to residents or the environment.  Twenty-five samples were taken per zip code region and tests were conducted to determine what or if chemical compounds were present.  Overall, lead was the most frequent metal compound found in the soil, which is not necessarily due to flooding given the high levels of lead commonly found pre-Katrina.  Diesel and oil-type petroleum hydrocarbons were also commonly found, which were attributed to surface runoff from roadways and parking lots in combination of releases of petroleum products from vehicles submerged in floodwaters.  Pesticides were also found in the soil at higher levels than usual but non-threatening and this was attributed to garden care products submerged in floodwaters as well.  In general, the sediment/soil testing results show little to no health risk in the areas impacted by Hurricane Katrina (for more information, click here).

White goods such as refrigerators, freezers, air conditioners, washers and dryers, were collected throughout the Parish as many were damaged from floodwaters.  To this date, almost a half million white goods have been collected in Orleans Parish and up to 165,000 small engines such as lawn mowers and leaf blowers (U.S. Army Corps of Engineers). 

Flooding also impacted many of the parks and golf courses throughout the Parish.  City Park, the largest park in the city, suffered damage on the total 1,100 acres.  This included the golf course, trees, and gardens.  Over 1,000 trees were damaged or toppled.  It was estimated that $43 million will be needed to rebuild the park (New Orleans City Park 2/2006).

Public Safety

Immediately after Katrina, police, fire, and EMS services were compromised.  Facilities and vehicles were damaged as well as the loss of employees due to evacuation.  Communication services were also damaged such that phones and internet services through land or cellular options were unavailable.  In addition, wireless technology was not available due to the loss of towers making communication during the storm extremely difficult if not impossible at times.

Overall, after the storm, 19 police facilities and 34 fire facilities were damaged. By November, most neighborhoods throughout the city had police and EMS services restored, but with augmentation from the National Guard.  At the same time, fire services were often delayed due to equipment loss, which resulted in delayed responses (FEMA). 

Human Services

Health and Medical Services

The health and welfare of residents in the New Orleans area has been significantly impacted by Hurricane Katrina.  Facilities are severely damaged and health care workers are displaced, many having lost their homes.  Months after Katrina passed through New Orleans; most residents still access health care services from only one trauma center and a handful of volunteer medical clinics that have opened in the Parish. 

Prior to the hurricane, Orleans Parish had extensive health care infrastructure including 23 hospitals, six of which were acute care hospitals.  More than two months after Katrina, only one care facility was operating.  The number has since risen to three, all with acute care capabilities (Department of Health and Human Services 2/2006).  Of the 13 primary and specialized care clinics operated by the New Orleans Health Department, only two facilities have reopened, and of the 90 safety net clinics operating before the storm, only 14 are open (DHH 2/2006)
 
The closure of the Medical Center of Louisiana at New Orleans (MCLNO), which included Charity and University Hospitals, has particularly impacted health care for low-income residents and the uninsured.  MCLNO represented about two-thirds of inpatient care to uninsured patients (Kaiser Commission on Medicaid and the Uninsured 2005).  The closure is also significant to higher education in the region.  MCLNO sponsored more than half the graduate medical education residencies for physicians, nurses and other health professionals in the state (LSU Health Care Services Division 2005).  

Getting to and from hospitals and health care facilities became more difficult as well.  Emergency medical transportation needs were previously served by 15-17 EMS units.  The parish now relies on seven EMS units.  Discharging patients with special needs safely from hospitals is hindered by the shrunken number outpatient care facilities which formerly included seven psychiatric hospitals and 31 outpatient behavioral health sites.  Post-Katrina those services are now represented by 64 inpatient beds, and 24 behavioral health sites.  Elderly residents who need care have been particularly impacted by the damage. Fifty-three nursing homes operated in Orleans, Jefferson, Plaquemines, and St. Bernard Parishes before Katrina.  Only six remained operational after the storm (Louisiana DHH).
 
One consequence of the displacement of health care workers from the area is a reduction in medical services offered.  Over 2,600 physicians served the metro area before the storm, but today the number stands at around 1,200, operating at partial capacity. By February 2006, two of 76 pharmacies reopened after the storm, and five dental chairs were served by a handful of the 259 pre-Katrina dentists (Louisiana DHH) 

City and state agencies serve an important role in planning for the recovery of health and human services in the region are currently operating with a small staff and often without the technical support necessary. The New Orleans Health Department, the Department of Social Services, and the Office of Public Health lost many of their facilities to flooding and much of their staff have been displaced (Bring New Orleans Back Commission). 

New Orleans Public and Private Schools

Pre-Katrina, there were 118 public schools operating in Orleans Parish, educating approximately 66,000 students. The New Orleans Public Schools system had been assessed and the majority of schools were deemed as failing by State of Louisiana Department of Education assessment standards. The Board of Elementary and Secondary Education (BESE) took over 102 school sites under the Recovery School District (RSD), and the New Orleans School Board was given control of 16 sites. The Archdiocese, other religious and private schools accounted for another 60 operating school buildings, with an estimated enrollment of 25,000 pre-Katrina. 
 
Six months after the storm, 17 public schools have reopened where 14 operate as charter schools.  Approximately 14% of the pre-Katrina enrollment, or 8,303 students, are attending public schools.   In the private sector, 37 of the 54 schools operated by the Archdiocese have reopened.  Total public and private enrollment in the city equals about 30% of the pre-hurricane level.

Culture and Arts

Cultural capital is one of the most significant attractions to Orleans Parish for both residents and tourists.  According to the State’s Tourism Office, the State of Louisiana and the City of New Orleans invested approximately $2 million in the nonprofit cultural economy of the city in 2003, and generated:

• 10,000 creative economy jobs;
• $45.5 million in spending by arts organizations;
• $259 million in spending by arts audience; and
• $17 million in city tax revenue.

Many cultural institutions suffered extensive damage either through flooding or from loss of artists and musicians from displacement.  After the storm, approximately four-thousand plus members of the cultural community were forced to leave and many are unable to return at present.  Fewer than ten percent of the musicians remain in the city. Further, seventy-five percent of the city’s 260 nonprofit cultural institutions museums, arts centers, and performance halls remained closed as of November 2005. In addition, 80% of the 750 commercial arts enterprises such as music clubs, art galleries and recording studios suffered from either wind or flood damage. Uninsured damage to cultural properties, arts business and artists now exceeds $80 million. Financial losses for social aid and pleasure clubs, Mardi Gras Indian tribes, and second line companies are conservatively estimated at over $3 million (New Orleans Rebirth: Restoring the Soul of America November 2005).

References and Relevant Web Sites

Current Housing Unit Damage Estimates: Hurricanes Katrina, Rita, and Wilma. February 2006.  U.S. Department of Housing and Urban Development’s Office of Policy Development and Research.

Flood Recovery Guidance. April 2006. FEMA.  Click here or here.

Hurricane Katrina - Adjusted Population Estimates.

Hurricane Katrina: Social-Demographic Characteristics of Impacted Areas. November 2005.  Congressional Research Services and Library of Congress. 

Hurricane Recovery Plans. March 2006. Louisiana Department of Health and Hospitals. Published Document.

Katrina Index: Tracking Variables of Post-Katrina Reconstruction.  April 2006.  The Brookings Institution.  Available at

Louisiana Rebirth: Restoring the Soul of America. November 2005.  Louisiana Department of Culture, Tourism, and Recreation.

Municipal Bankruptcy In Perspective.  April 2006. Bureau of Governmental Affairs and the Public Affairs Research Council of Louisiana. 

Progress Made: A 6-Month Update on Hurricane Relief, Recovery, and Rebuilding. February 2006. Office of the Federal Coordinator for Gulf Coast Rebuilding.

Rapid Population Estimate Project. January 2006. City of New Orleans.