Environmental
Spatial Analysis
The environmental team has chosen to compare the Projected 5ft-above-high-tide Flooding map (ENV) with the Poverty by Zip Code and Percent of Population Black maps in order to analyze the overlay for spatial patterns. Figure 1 shows Poverty by Zip Code map overlaid with the Projected Flooding map, and Figure 2 shows the Percent of Population Black map overlaid with the Projected Flooding map. These three maps were selected because the marginalized communities are often impacted more by natural disasters due to their socio-economic status. We will describe what each of the maps represent and how they overlap to show different trends in vulnerabilities that exist in the City of Savannah.
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Figure 1. Poverty by Zip Code map overlaid with 5ft Projected Flooding map
Figure 2. Percent of Total Population Black by Census Tract map overlaid with 5ft Projected Flooding map
By comparing the poverty by zip code map from the economic team to the projected flood area map, seen in Figure 1, we notice that the poorer areas of the city are more drastically affected by rising sea level. In the projected flooding map, we can notice that along the Savannah River and the Ogeechee River there is a greater risk of flooding; cross-referencing that to the poverty by zip code map, we can see that many of Savannah’s poorest communities live along these two rivers. The Clearview, Carver Village and Florida Junction, shown in Figure 2, are areas located on the Savannah River that have a poverty rate of around 26%. With the elevated risk of flooding in the areas adjacent to the river, we see that these particular communities are examples of the regions in the highest risk; since a large portion of people in this neighborhood live in poverty, they will be unable to protect themselves and their household in the event of a severe flood.
Figure 3. Close-up of Figure 1 along the Savannah River
Figure 4. Close-up of Figure 1 on the Ogeechee River showing correlation between flood risk and poverty
There is also a notable correlation between projected flood areas and tracts having a higher percentage of Black residents, particularly in areas within Downtown Savannah closest to the Savannah River. As seen in Figure 5, Clearview, Carver Village, and Florida Junction on the west, along with communities close to Lepageville on the east show overlap between high percentage Black population and areas susceptible to 5 foot flooding. Between 65% to 75% of residents in these locations are Black or African American according to 2010 census data. Areas near Grove Point and Whitebluff, shown in Figure 6, are affected heavily by flooding as well due to their proximity to the Ogeechee River. Between 45% to 55% of residents in these areas are Black or African American according to 2010 census data. As noted before, neighborhoods closer to the Savannah River and Ogeechee River are subject to greater risk of severe flooding due to the effects of climate change. This makes the Black individuals of Savannah more vulnerable to the effects of climate change, as compared to other racial demographics in Savannah.
Figure 5. Close-up of Figure 2 along the Savannah River showing high correlation between flood risk and percentage Black or African American population
Figure 6. Close-up of Figure 2 along the Ogeechee River showing correlation between flood risk and percentage Black or African American population
In comparing the Poverty by zip code and percent Black population maps, we see a clear correlation between mostly Black neighborhoods and those with a greater proportion of their residence living in poverty. This is likely due to the history of systemic racism and generational poverty prevalent in our country. The correlation between impoverished Black communities in Savannah being located in higher risk flood areas also makes sense from a historical standpoint. Historically, segregation forced African-American populations to live in the most undesirable parts of a city. In Savannah’s case this could align with areas surrounding the historically polluted Savannah River (Gayer, 2014). Redlining practices from the 1930’s onward also perpetuated the cycle of poverty in these areas, as mostly Afican American neighborhoods were discriminately denied access to housing loans, one of the main engines of wealth generation in the 20th century, for decades in Savannah (Murphy S.E., 2019).
Problems Identified
The overlaid maps reveal issues regarding poverty and the lasting effects of segregation and racist policies within the limits of Savannah. The Poverty Rate by Zip Code map and the Percent of Population Black or African American map demonstrates that marginalized communities are disproportionately located in areas more susceptible to flooding. Neighborhoods bordering the Savannah River and the Ogeechee River that are likely to experience high levels of flooding have higher rates of poverty and a higher percentage Black population than other flood-risk areas of Savannah. Across the globe, marginalized communities face increased vulnerability to the effects of climate change and sea level rise, due to their inability to participate in environmental policies that have great impacts on their lives (Rayner and Malone, 2003). In conversation with Dr. Mildred McClain, co-founder and Executive Director of the Harambee House, we learned that the residents in these neighborhoods are often disregarded from conversations that directly affect them (M. McClain, 2020). By including these communities in the conversation, we would be able to better understand the needs of the community.
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While examining the Projected 5-ft Flooding map with the Percent of Population Black or African American map, it becomes very clear that majority Black communities will be more severely impacted by flooding. This is an example of patterns of behavior known as environmental racism. Environmental racism refers to the injustice that occurs in communities of color with regard to their environmental health and security. Near the bank of both the Savannah River and the Ogeechee River, African American populations are more severely affected by climate change and resulting sea level rise. The map reveals that higher percentage white neighborhoods are located farther inland than the most flood-vulnerable neighborhoods, and often have lower rates of poverty. This shows how city limits, institutional racism, and individual bias have caused the, in general, poorer African American populations to live in areas closer to the river, placing them at higher risk for flood hazards.
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Similarly, the maps demonstrate that the areas with higher poverty by zip code are also highly vulnerable to floods and sea level rise. As flooding events become more frequent, the neighborhoods around the Savannah and Ogeechee Rivers will be unable to afford repairs for their homes, and those that rent their homes may be forced out. According to the 2019 Georgia census, 56.1% of households in Savannah are renters, which makes them become more susceptible to eviction if flooding occurs (Census Bureau, 2019). After natural disasters, like flooding, occurs, landlords are sometimes reluctant to readmit renters. This is due to a number of reasons; fear of lawsuits for unsafe conditions, a lack of capital to repair housing units, wanting to break leases or to re-rent apartments at higher rates, or wanting to demolish damaged properties and rebuild alternative housing (Elliot and Pais, 2006). Renters’ job security is also greatly affected by flooding, as poor residents are unable to provide temporary housing for themselves or afford to live in the city. When Hurricane Katrina flooded 80% of New Orleans in 2005, surveys showed that renters were 1.9 times more likely to have lost their jobs in the aftermath of the storm than home-owners (Elliot and Pais, 2006).
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Finally another issue that arises during flooding is evacuation. The Chatham Emergency Management Agency (CEMA) manages flood warnings in Savannah. Once CEMA receives word that there are potential dangers, they will activate a siren, however this siren may give as little as a fifteen minute warning (Chatham County Emergency Management., n.d.). In our discussion with Dr. McClain, she explained to us that many residents are not aware that this siren exists so when it does ring they do not take appropriate actions to protect themselves (M. McClain, 2020). In addition to limited communication regarding flood hazards, 8% of Savannah residents are completely vulnerable to flooding as they have no vehicles available to them in their household and thus cannot evacuate (Chatham County Department of Engineering, 2018). These issues continue to grow and develop as cities are segregating across class lines and subjected poorer residents to unequal treatment when natural disasters and changing climates occur.
Actions by the City of Savannah
The City of Savannah, in 2012, created a Flood Mitigation Plan that was primarily created to address flash flooding and not sea level rise. However, the Flood Mitigation Plan still establishes different measures to prevent flooding such as regulating construction ordinances, developing stormwater conveyance systems and maintaining drainage systems that all prove beneficial for any water surge event, whether it be unexpected flash flooding or the more systemic sea level rise. The Plan lists 26 unique actions the city was to undertake in order to bolster their flood mitigation system, which are all grouped into 6 overarching goals: “establish measures to prevent flooding,” “implement property protection activities,” “ensure natural resource protection,” “enhance emergency services,” “construct structural projects,” and “perform public information activities.” These 26 activities were then ranked from highest to lowest priority by the 8 Planning Committee members at the time. The highest priority projects from each of the six goals were action 1.8, “maintain drainage system,” action 2.3, “encourage purchase of flood insurance,” action 3.5, “ Regulate development within Chatham County's coastal barrier areas,” action 4.1, “Merge the FMP with the Emergency Operation Plan,” action 5.1, “Implement channel modification improvements”, and action 6.2, “provide technical assistance”(Chatham County Department of Engineering, 2012).
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These six actions represent the more important actions used by Savannah for flood mitigation, yet still fall flat of a complete flood mitigation system. Of the six, the drainage system, coastal construction regulation, and channel improvements help with the built infrastructure of the city, while the flood insurance, emergency system collaboration, and technical assistance are focused more towards the improvement of the flood information network to help and inform citizens about the flood risks of Savannah.
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Action 1.6 uses Hazard Mitigation Assistance Grants as well as local funds with the aim was to “properly design stormwater conveyance systems [that are] effective in preventing erosion and can channel stormwater runoff.” The second of the six actions, to “encourage the purchase of flood insurance,” allows flood victims to be reimbursed for building losses up to $250,000, along with content and business coverage also being available. The third and sixth actions, to “regulate development within Chatham County's coastal barrier areas” and “implement channel modification improvements,” are akin to the first action in that they aim to ensure adequate built environments for mitigating damage in the event of a flood. The fourth and sixth actions, “Merge the FMP with the Emergency Operation Plan” and “Provide technical assistance” respectively, utilize local funds to bolster the flood information network, in order to assure proper community education and preparedness for flooding events.
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While these actions are put in place to assist both the built flood infrastructure as well as the flood information network, we believe much more can be done in both of these areas. This can be seen throughout the world, where similarly flood-prone urban areas are being more proactive and less reactive in their flood responses.
Actions by Other Cities
Example of Solutions in Rotterdam, Netherlands
Hundreds of coastal cities in the US and around the world are facing increased flooding just like Savannah, and some like Rotterdam, the largest port in Europe with a history of calamities related to flooding, are leading the world in hard-engineering techniques that embrace living with water. These techniques include constructing sea walls, water pumps, flood gates, and overflow chambers, which work together to directionally control the flow of water in the city and prevent excess water from entering the city from the sea (Muggah, 2019). A famous example involves Rotterdam’s Maeslantkering, which translates to “Maeslant barrier” in Dutch. The Maeslantkering is a storm surge barrier consisting of two large barrier gates as large as the Eiffel Tower that protects the city’s main waterway from storm surges when closed (Kimmelman & Haner, 2017). On a smaller scale, Rotterdam has also constructed “water squares” in underserved neighborhoods, shown in Figure 7. These operate as urban retention ponds that relieve pressures on drainage systems and in urban areas where natural retention ponds could not exist while also acting as public spaces for citizens to gather (C40 Cities, 2014).
Figure 7. Rendering of Water Squares retaining water during flooding in an urban park in Rotterdam, Netherlands (Keeton, 2014)
Additionally, Rotterdam specifically has taken the initiative to educate its citizens on the effects of climate change, as a result “[putting] climate adaptation high on the public agenda” (Kimmelman & Haner, 2017). Rather than viewing climate change as a threat, the citizens of Rotterdam believe there is an “opportunity to make the city more resilient, more attractive, and economically stronger” (Muggah, 2019). A few examples of Rotterdam’s public outreach campaigns can be found in the third and fourth steps of their four-step adaptation strategy, which are “working together and linking in with other projects in the city” and “added value for the environment, society, economy, and ecology” (Connecting Delta Cities, n.d.). Such programs include hosting public workshops in their sustainable floating pavilions, as well as the municipality substantiating the growth of climate adaptation-linked job training and offering “scope for pilot programs and innovations within climate adaptation measures”. The City of Savannah could explore similar engineering and educational solutions to prevent and address future flooding in the city as a whole. These solutions must be compliant with the three pillars of sustainability to ensure long-lasting growth in Savannah, while prioritizing the needs of vulnerable communities in the city.