Years prior to the devastating flooding that claimed over 90 lives in Kerr County, Texas, local authorities were acutely aware of the looming threats posed by rapidly rising waters. In response, they initiated plans for a flood warning system aimed at alerting residents when flash floods were imminent. However, like many communities nationwide, Kerr County faced significant challenges in securing the necessary funding for this critical infrastructure. The county turned to the most substantial funding source available for localities: the Federal Emergency Management Agency (FEMA).
In the past five years, FEMA has allocated billions of dollars to assist communities in preparing for disasters. Research has shown that when communities invest in infrastructure and disaster preparedness, the damage caused by disasters can be significantly reduced, ultimately saving lives. Unfortunately, Kerr County's funding application was rejected by Texas officials responsible for managing federal funds. As with many of FEMA's programs, the demand for funding far exceeded the available resources.
Seeking alternative options, Kerr County explored a state grant program in Texas designed for flood projects. However, they ultimately abandoned this route upon realizing that the program would only cover a small fraction of the total costs. Currently, Texas has more than $54 billion in flood projects awaiting construction, yet state legislators have allocated only a small portion of that funding.
The funding landscape for at-risk communities is becoming increasingly constrained. The Trump administration froze or canceled billions of dollars intended to bolster disaster preparedness. An executive order signed by Trump mandated that states should assume responsibility for funding disaster preparedness, diminishing the federal government’s role in this area. Christopher Steubing, executive director of the Texas Floodplain Management Association, expressed concern, stating, "FEMA has a reason to be around and they need to be there." He emphasized the importance of FEMA's programs, which many communities rely on for support.
In 2016, Kerr County officials observed neighboring counties implementing flood warning systems designed to save lives. This concern intensified after 13 individuals lost their lives due to extreme flooding in Wimberley County in 2015. Tom Moser, a former Kerr County commissioner, noted, "This area is one of the highest probability areas for flash floods that exists." Officials recognized that various river gauges did not connect to a centralized system, resulting in inadequate warning for residents in flood-prone areas.
The county proposed a flood warning system with an estimated cost of just under $1 million. However, the plan faced setbacks, including the removal of sirens from the proposal due to community pushback. Ultimately, when Kerr County sought federal funds through FEMA's Hazard Mitigation Grant Program, they were turned down twice by the Texas Division of Emergency Management, according to meeting transcripts.
In addition to federal funding, Kerr County, in collaboration with the Upper Guadalupe River Authority, explored the Texas Flood Infrastructure Fund, established in 2019 with an initial allocation of $793 million. This program offers loans and grants, yet the grants require local communities to cover a significant portion of their project costs. For Kerr County, this meant they would need to bear 95% of the expenses, a burden deemed unfeasible by former Commissioner Moser.
Local officials have expressed concerns regarding the challenges faced by communities seeking funding for flood control projects. These projects often do not generate revenue, making it politically challenging to raise local taxes to finance them. Moser highlighted that tax increases were rarely implemented during his tenure as commissioner, reflecting the broader reluctance to raise taxes across Texas.
Over the past five years, FEMA's funding initiatives have significantly transformed the funding landscape for communities. These programs emphasized proactive disaster preparedness rather than merely addressing damage after disasters occurred. However, the recent cancellation of the $4.6 billion Building Resilient Infrastructure and Communities (BRIC) program and the freezing of the Flood Mitigation Assistance program has left communities like Kerr County in a precarious position.
The Trump administration's directive for increased state and local responsibility in disaster preparedness has created uncertainty for many communities. Steubing noted that while his association supports improving the efficiency of FEMA's programs, the loss of federal funding will create a substantial gap in resources needed for flood management.
In 2024, Texas released its inaugural statewide plan for addressing flood risk, revealing that 1 in every 6 people in Texas resides or works in a flood hazard area. The plan also highlighted that local governments are unable to cover the projected $54.5 billion in costs associated with necessary flood projects. Experts estimate that 80% to 90% of this funding must come from state and federal sources to successfully complete these projects.
Texas’ state flood fund has disbursed nearly $670 million for projects thus far, but accessing these funds can be challenging for smaller communities. The fund offers zero-interest loans, which communities must repay, or grants that cover only a fraction of project costs. Steubing has advocated for making grant opportunities more accessible to communities like Kerr County.
Even if Texas were to complete all necessary flood projects, climate experts warn that these measures may not fully protect residents from future risks. Many existing projects fail to account for climate change, which has already led to increased rainfall intensity. For instance, Harris County flood officials discovered that extreme storms now deliver up to 17 inches of rain, compared to previous averages of 13 inches. This shift has significantly inflated construction costs as flood projects must be engineered to withstand greater water volumes.
Jim Blackburn, co-director of Rice University's Severe Storm Prevention, Education, and Evacuation from Disasters Center, emphasized that reliance on outdated rainfall records can lead to inadequate planning. He stated, "The past used to be reliable for engineers to depend upon to predict the future, but with climate change, you can't do that." Blackburn advocates for alternative strategies to protect residents, such as relocating individuals from hazardous floodplains and expanding natural wetlands to accommodate floodwaters.
As Texas grapples with the ongoing threat of flooding, the need for innovative and adaptable solutions has never been more pressing. The state's approach to flood management must evolve to address the realities of climate change, ensuring that communities are better prepared for the challenges ahead.
