25 Years Later: Five Recovery Insights Gained After Hurricane Floyd

In September 1999, Hurricane Floyd unleashed its fury on North Carolina, becoming one of the most catastrophic natural disasters in the state’s history. The storm’s devastating impact ravaged the eastern region, leaving a trail of destruction in its wake. The aftermath was so severe that I took a leave of absence from my position at the University of North Carolina at Chapel Hill’s Institute of Government a year later. I transitioned to a role in state government, serving as a special advisor to the Governor on Hurricane Floyd Recovery at the North Carolina Department of Commerce.
As I reflect on Hurricane Helene’s destructive impact on western North Carolina, 25 years after Floyd’s rampage, my heart aches anew. I’m compelled to share five crucial lessons that continue to shape my understanding of disaster recovery. These insights underscore:
1) the necessity of clear communication, particularly in the immediate aftermath;
2) the importance of human-centered design in recovery programs;
3) the vital role of local community organizations with on-the-ground capacity in program delivery;
4) the need for seamless coordination among support agencies; and
5) the recognition that recovery is a marathon, not a sprint, requiring robust data for success.
These lessons remain critical in our approach to disaster response and long-term rebuilding efforts.
Flooding in a Greenville, N.C. neighborhood after Floyd. (Image by Dave Saville/FEMA)
Clear Communication is Essential in the Immediate Aftermath
Clear and effective communication is paramount in the immediate aftermath of a natural disaster. It serves as a vital lifeline, ensuring that information, resources, and support reach those in crisis. It is also critical for family and friends of people in the region. The communications must include frequent updates on the situation, safety advisories, and available resources.
After Floyd, we were not unduly concerned about intentional disinformation, which is a newer concern. However, even then, it was clear that effective communication was essential to building and maintaining public trust and confidence in government agencies and other organizations involved in disaster response when people are feeling highly anxious, uncertain, and vulnerable.
We need to be prepared to take the lead in communication during these moments. After Floyd, untrue rumors abounded among neighbors about who qualified for relief and recovery programs. Unfortunately, some people failed to meet deadlines due to these rumors.
Hurricane Helene has highlighted the need to be prepared for some communication platforms to be unavailable in the early days. When traditional media such as television, radio, and newspapers are unavailable, digital platforms like social media and websites play an outsized role even when only available through hot spots. Our recent experience also made clear the importance of immediate opportunities for feedback and input from the public. These loops help identify communication gaps and ensure that messages are being received and understood.
The Need for Human-Centered Design
Human-centered design is crucial for effective disaster recovery. This was one of my most profound realizations following Hurricane Floyd. Despite good intentions, many recovery efforts failed to adequately address survivors’ needs and circumstances. The complexity of various programs and their relationships often confused those affected, leading many eligible individuals to forgo applying for the assistance they desperately needed. This oversight highlighted the critical importance of designing recovery solutions that prioritize the perspectives and experiences of survivors, ensuring that aid reaches those who need it most.
While the pressure to begin recovery almost immediately is great, it is worth taking some time to understand each community’s unique circumstances and tailor strategies accordingly. By focusing on the people we are trying to support rather than imposing top-down solutions, we create more effective and relevant recovery efforts that empower communities.
For example, the State of North Carolina sought to address gaps in federal programs after Hurricane Floyd. These state programs provided funding to people who did not qualify for federal programs. However, many people impacted by Hurricane Floyd did not understand the difference between federal and state programs. As a result, some did not realize they could apply for state programs if they were denied support from federal programs. One woman in Rocky Mount said, “They told me I did not qualify. I thought that meant I did not qualify for any program.”
The Importance of Boots-on-the-Ground Local Capacity
A crucial element of effective disaster recovery is having a strong local presence—”boots on the ground”—in the affected areas. While remote assessments and strategic planning play important roles, they often fail to capture the full picture of the situation. Local organizations physically present in disaster-stricken communities provide invaluable insights that bridge the gap between theoretical projections and actual conditions. Their firsthand experiences and direct interactions with survivors allow for a more accurate understanding of needs and challenges, leading to more effective and tailored recovery efforts.
Local people and organizations that understand affected communities bring invaluable insights on needs outsiders might miss and offer important immediate assistance where needed most. Furthermore, these local groups foster trust within the community, facilitating better communication and stronger relationships between the communities affected and state and local program administrators.
These organizations know many of the people in communities affected and can reach them when state and local governments may not. As a result, they not only share information with residents but also share with program administrators the experiences and frustrations residents face during the recovery.
During the Floyd recovery efforts, the state utilized community-based organizations, including community development corporations, as information brokers. I saw firsthand how helpful it was to leverage local organizations with established trust and strong relationships in their communities. These organizations understood the needs and concerns of the populations they already served and could distribute resources effectively. Additionally, they mobilized volunteers, gathered feedback, and provided crucial emotional support to those affected. It was inspiring to see how these grassroots efforts complemented larger recovery initiatives, creating a more holistic approach to disaster recovery.
The Requirement for Seamless Coordination Between Federal and State Supports
Another lesson learned was the necessity for seamless coordination between federal and state support systems. After Hurricane Floyd, I witnessed how different agencies—each with their own protocols and points of contact—could lead to confusion and frustration for those trying to navigate the recovery process. Establishing clear communication channels and collaborative frameworks between federal and state agencies helped streamline recovery operations and enhanced the experience for residents seeking assistance. When agencies worked together effectively, resources were allocated more efficiently, and support was delivered in a more timely manner. This ensured that those affected by disasters received the help they desperately needed without being lost in a maze of bureaucracy.
Federal, state, and local resources are already supporting recovery from Hurricane Helene. The responsible agencies would do well to coordinate intentionally.
It’s Going to Take More Time Than Anyone Wants to Admit. Learn from the Data.
Finally, perhaps the most sobering yet realistic lesson was that recovery takes longer than anyone anticipates. The immediate aftermath of a disaster generates a sense of urgency, leading many to expect rapid solutions. However, rebuilding lives, homes, and communities is a complex process that requires substantial time and patience. Challenges are bound to arise— from bureaucratic processes to securing funding and implementing long-term recovery plans. Accepting this reality is essential for the organizations and residents involved.
Effective disaster recovery assessment depends on consistent data collection throughout the recovery process. It’s crucial to gather and record relevant information daily, starting immediately after the event and continuing for months afterward. The most efficient approach is to integrate this data collection into existing documentation procedures that local officials already follow during and after disasters. By modifying current report formats, we can capture vital information about recovery duration, effort levels, and associated costs. This data should be saved daily at local or state levels as part of the event documentation. To track changes in community resilience over time, it’s important to incorporate this process and the resulting data into state and local hazard mitigation plans. This approach ensures a comprehensive and ongoing assessment of recovery progress and community resilience.
Community clears Hurricane Helene damage in Asheville, N.C. (Image by USA Today)
Conclusion
Disaster recovery extends far beyond rebuilding physical structures. It’s a complex process that prioritizes people, strengthens community bonds, and addresses the intricacies of rebuilding lives. My experience with Hurricane Floyd’s aftermath highlighted several crucial lessons:
- Clear communication is vital, especially immediately after a disaster strikes.
- Recovery programs must be designed with a human-centered approach.
- Local community organizations with on-the-ground capacity are essential for effective program delivery.
- Seamless coordination among support agencies is critical for successful recovery efforts.
- Most importantly, I learned that recovery is a long-term journey requiring patience. True healing demands time, empathy, and sustained commitment from all parties involved.
These insights, gleaned over two decades ago, remain equally relevant today as communities worldwide continue to face natural disasters. They can serve as a guide for creating more resilient and effective recovery strategies in the face of future challenges.