    [Senate Hearing 117-512]
    [From the U.S. Government Publishing Office]

                                                            S. Hrg. 117-512

                       ADDRESSING THE THREAT OF WORSENING
                                  NATURAL DISASTERS

    =======================================================================

                                    HEARING

                                   BEFORE THE

                                  COMMITTEE ON
                   HOMELAND SECURITY AND GOVERNMENTAL AFFAIRS
                              UNITED STATES SENATE

                        ONE HUNDRED SEVENTEENTH CONGRESS

                                 FIRST SESSION

                                   __________

                               SEPTEMBER 29, 2021

                                   __________

            Available via the World Wide Web: http://www.govinfo.gov

                           Printed for the use of the
            Committee on Homeland Security and Governmental Affairs

    [GRAPHIC NOT AVAILABLE IN TIFF FORMAT]

                        U.S. GOVERNMENT PUBLISHING OFFICE
    47-978 PDF                WASHINGTON : 2022

    -----------------------------------------------------------------------------------

            COMMITTEE ON HOMELAND SECURITY AND GOVERNMENTAL AFFAIRS

                       GARY C. PETERS, Michigan, Chairman
    THOMAS R. CARPER, Delaware           ROB PORTMAN, Ohio
    MAGGIE HASSAN, New Hampshire         RON JOHNSON, Wisconsin
    KYRSTEN SINEMA, Arizona              RAND PAUL, Kentucky
    JACKY ROSEN, Nevada                  JAMES LANKFORD, Oklahoma
    ALEX PADILLA, California             MITT ROMNEY, Utah
    JON OSSOFF, Georgia                  RICK SCOTT, Florida
                                         JOSH HAWLEY, Missouri

                       David M. Weinberg, Staff Director
                        Zachary I. Schram, Chief Counsel
             Christopher J. Mulkins, Director of Homeland Security
               Naveed Jazayeri, Senior Professional Staff Member
                    Benjamin J. Schubert, Research Assistant
                    Pamela Thiessen, Minority Staff Director
        Andrew Dockham, Minority Chief Counsel and Deputy Staff Director
         Clyde E. Hicks Jr., Minority Senior Professional Staff Member
                         Laura W. Kilbride, Chief Clerk
                         Thomas J. Spino, Hearing Clerk

                                C O N T E N T S

                                     ------
    Opening statements:
                                                                       Page
        Senator Peters...............................................     1
        Senator Portman..............................................     2
        Senator Hassan...............................................    16
        Senator Rosen................................................    18
        Senator Padilla..............................................    21
        Senator Ossoff...............................................    22
    Prepared statements:
        Senator Peters...............................................    27
        Senator Portman..............................................    29

                                   WITNESSES
                         Wednesday, September 29, 2021

    Sima Merick, President, National Emergency Managers Association
      and Executive Director, Ohio Emergency Management Agency.......     5
    Jerry Hancock, Executive Director, Michigan Stormwater Floodplain
      Association and Stormwater and Floodplain Programs Coordinator,
      Ann Arbor, Michigan............................................     6
    Jennifer Pipa, Vice President of Disaster Programs, American Red
      Cross..........................................................     8
    John S. Butler, Second Vice President International Association
      of Fire Chiefs and Fire Chief, Fairfax County, Virginia........    10

                         Alphabetical List of Witnesses

    Butler, John S.:
        Testimony....................................................    10
        Prepared statement...........................................    55
    Hancock, Jerry:
        Testimony....................................................     6
        Prepared statement...........................................    37
    Merick, Sima:
        Testimony....................................................     5
        Prepared statement...........................................    31
    Pipa, Jennifer:
        Testimony....................................................     8
        Prepared statement...........................................    49

                                    APPENDIX

    Responses to post-hearing questions for the Record:
        Ms. Merick...................................................    61
        Mr. Butler...................................................    62

              ADDRESSING THE THREAT OF WORSENING NATURAL DISASTERS

                                  ----------

                         WEDNESDAY, SEPTEMBER 29, 2021

                                         U.S. Senate,
                               Committee on Homeland Security
                                      and Governmental Affairs,
                                                        Washington, DC.
        The Committee met, pursuant to notice, at 10 a.m., via
    Webex and in room SD-342, Dirksen Senate Office Building, Hon.
    Gary Peters, Chairman of the Committee, presiding.
        Present: Senators Peters, Hassan, Sinema, Rosen, Padilla,
    Ossoff, Portman, Johnson, Lankford, Romney, Scott, and Hawley.

                OPENING STATEMENT OF CHAIRMAN PETERS\1\

        Chairman Peters. The Committee will come to order.
    ---------------------------------------------------------------------------
        \1\ The prepared statement of Senator Peters appear in the Appendix
    on page 27.
    ---------------------------------------------------------------------------
        Every September, we observe National Preparedness Month, a
    critical reminder that planning ahead for a natural disaster
    can help save lives. Preparedness is becoming more and more
    important as we continue to see increasingly severe storms and
    weather events that create life-threatening situations and
    cause serious damage to our communities. Driven by climate
    change, these extreme storms, hurricanes, wildfires, and
    floods, are becoming more frequent, and more destructive every
    year.
        At the same time, our Federal, State, and local emergency
    responders are also working to address the ongoing public
    health crisis caused by the Coronavirus Disease 2019 (COVID-19)
    pandemic. As a result of these compounding circumstances, our
    disaster response resources, personnel, and volunteers are
    stretched thin, making emergency response and recovery more
    challenging and more expensive.
        Severe storms, extreme flooding, and devastating wildfires
    cost our nation billions of dollars every year. But we can
    strengthen our disaster response efforts, and save taxpayer
    dollars, by making smart, forward-looking investments in
    mitigation before a disaster strikes. In fact, studies have
    shown that every $1 invested in hazard mitigation or prevention
    saves an average of $6 in recovery costs for taxpayers.
        As we continue to see worsening natural disasters and the
    dire consequences they have on our communities we must take
    swift action to upgrade our infrastructure and ensure our
    roads, bridges, homes, and businesses, are resilient enough to
    withstand increasingly severe weather events.
        That is why I worked to pass the Safeguarding Tomorrow
    Through Ongoing Risk Mitigation (STORM) Act, which was signed
    into law earlier this year, to help provide States and local
    communities with access to the resources they need to make
    these critical investments. I was pleased to secure $500
    million in initial funding for the program as part of the
    Senate-passed bipartisan infrastructure bill, and look forward
    to the House considering that bill soon.
        The STORM Act, and this initial funding, will help kick-
    start loan programs in every State to help communities begin to
    reduce their natural disaster risks.
        In addition to creating these kinds of new opportunities to
    help communities prevent widespread damage, we must also ensure
    our disaster recovery efforts are working effectively. Most
    importantly, we must have enough personnel and volunteers to
    assist in disaster recovery efforts. Ranking Member Portman and
    I introduced bipartisan legislation earlier this year that
    would help the Federal Emergency Management Agency (FEMA),
    ensure that we are able to recruit and retain enough Reservists
    to quickly respond to emergencies by providing important
    employment protections. I look forward to continuing to advance
    this bill so that we can help reduce the burden that make it
    difficult for FEMA to recruit and retain emergency response
    personnel.
        We have also seen firsthand how our disaster recovery
    resources do not always reach the communities most in need.
    Whether they are recovering from a hurricane or other severe
    weather events or seeking resources related to the COVID-19
    pandemic response, too many of our most vulnerable communities
    do not have equal access to this vital assistance. Communities
    of color and other underserved communities often
    disproportionately face the consequences of disasters, and our
    disaster response efforts typically provide slow or inadequate
    relief to those communities.
        Last Congress, I worked on legislation that would begin to
    strengthen our disaster response for all Americans by creating
    an office at FEMA that would be focused on ensuring equitable
    access to disaster assistance, and I look forward to continuing
    that effort to ensure that no matter when or where a disaster
    strikes, help will be readily available.
        I appreciate our witnesses for joining us here today and
    look forward to discussing these issues and other efforts that
    will help strengthen our disaster preparedness and response
    efforts across the country.
        Ranking Member, you are recognized for your opening
    comments.

                OPENING STATEMENT OF SENATOR PORTMAN\1\

        Senator Portman. Thank you, Mr. Chairman. I thank the
    witnesses for being here today. We are pleased to have a
    witness from Ohio with us, who has done a great job in ensuring
    that we have preparedness in our own State but also has worked
    with the National Emergency Management Association (NEMA). Ms.
    Merick, thank you for being here.
    ---------------------------------------------------------------------------
        \1\ The prepared statement of Senator Portman appears in the
    Appendix on page 29.
    ---------------------------------------------------------------------------
        This is an important hearing. We have the opportunity today
    to talk about preparedness to deal with these natural
    disasters, and let us face it, there are more and more of them.
    We have seen, over the past couple of years, the most damaging
    wildfires, droughts, and hurricanes in our recent history. We
    need to be better prepared, and we need to be sure that FEMA is
    there to respond effectively.
        FEMA is the principle agency that coordinates the Federal
    response to natural disasters, but just to remind people, we
    have a decentralized system in this country. FEMA does not
    provide the boots on the ground, for the most part. It is local
    responders who are first on the scene when disasters strike.
    This is reflected by the way FEMA's emergency management
    strategy, and I will quote from it, it is ``federally
    supported, State managed, and locally executed.''
        I have seen firsthand the importance of this local
    preparedness and response in Ohio on a lot of occasions over
    the past couple decades, representing southern Ohio and now the
    whole State. We have had flooding, we have had tornadoes, and
    we have had other emergencies.
        In May 2019, we had a series of tornados that touched down
    across western Ohio, damaging or destroying hundreds of homes
    and businesses in the Miami Valley and displacing a lot of my
    fellow Ohioans. The most extreme damage occurred in Dayton,
    Ohio, area and the surrounding communities of Trotwood and
    Beavercreek.
        Incredibly, and thanks in large part to the alert systems
    and training of our local first responders, while 166 people
    were injured, we did not have a single loss of life in the
    Dayton area that night, and if you had seen the destruction as
    I did, you would be amazed that people were not killed. It is
    amazing how quickly people got out of their homes and were able
    to avoid even worse situations. We did, sadly, have one
    casualty from a tornado that touched down further north in
    Salina, Ohio.
        In the immediate aftermath, my wife Jane and I drove from
    our home to Dayton, Ohio, early in the morning, right after the
    tornado had hit, and we went to thank people, to show our
    support for the first responders, not to get in the way, but to
    ensure that they knew that we were there to support them and to
    talk to constituents who had been displaced.
        We saw devastation, downed trees, and property damage, but
    we also saw the impressive work being done by our local first
    responders as well as immediate response from our State
    partners and also Federal partners who were already on the
    ground or on their way.
        Montgomery County Sheriff, Rob Streck, took the lead in the
    Dayton area for much of the damage, and he had a command center
    set up immediately. I was able to talk to him and his team and
    the Central Ohio Strike Team, which is an urban search and
    rescue (US&R) unit out of Columbus, Ohio. I am really eager to
    talk more about the US&R teams around the country. We did pass
    legislation a few years ago to help our US&R teams, but they do
    an awesome job, and respond not just in Ohio but from Ohio all
    over the country, most recently with the hurricanes in the
    South, Southeast, but also with regard to 9/11. They were
    there, on the spot, and that was Ohio Task Force 1.
        We also went to see the Red Cross and what they were doing,
    which was shelters that had been set up. Again, we talked to
    constituents about the situations they were facing. But less
    than 12 hours after the tornadoes hit, the Red Cross was
    already providing food, water, and shelter, and a place for
    people to stay who had lost their homes. This security and a
    place to stay was absolutely critical to the people I talked
    to, as they prepared to rebuild their lives, some from scratch.
        Within a few weeks of the event, FEMA had three active
    centers open across the Miami Valley, with case workers, mental
    health workers, people who can help with businesses, people who
    can help with small business loans. They also established an
    area for children to decompress and an area dedicated to
    helping people with disabilities. This was all set up pretty
    quickly, and again, I had a chance to tour these.
        I can assure you, it would have been much worse but for the
    preparedness our region and the preparedness our State had in
    place and the quick response from the first responders. I am
    proud of southwest Ohio for coming together so quickly in this
    case, but it is an example that I have seen around the State of
    preparedness done right.
        Again, to Sima Merick, thank you for being here today and
    for the crucial role that you play for the National Emergency
    Managers Association in addition to your work in Ohio. You were
    leading the Ohio Emergency Management Agency (EMA) in 2019 when
    the tornadoes hit, and so I saw the good work that your folks
    were doing.
        I look forward to all our witnesses today, and I look
    forward to discussing the importance of properly preparing for
    our natural disasters.
        Thank you, Mr. Chairman.
        Chairman Peters. Thank you, Senator Portman.
        It is the practice of this Committee to swear in witnesses,
    so if the witnesses will stand and raise your right hand,
    including those who are joining us by video.
        Do you swear that the testimony you will give before this
    Committee will be the truth, the whole truth, and nothing but
    the truth, so help you, God?
        Ms. Merick. I do.
        Mr. Hancock. I do.
        Ms. Pipa. I do.
        Mr. Butler. I do.
        Chairman Peters. Thank you. You may be seated.
        Our first witness is Sima Merick. Ms. Merick serves as the
    Executive Director of the Ohio Emergency Management Agency and
    has been an employee of the Ohio Department of Public Safety
    for nearly 35 years. She began her career as a dispatcher for
    the Ohio State Highway Patrol in 1985, and held other positions
    within that division until 1996, where she began her career
    preparing the emergency management and mitigation techniques
    still widely utilized today.
        Ms. Merick was appointed by Governor Kasich in 2011, to be
    Assistant Director of the Ohio Emergency Management Agency, and
    served in that role until being appointed in June 2015 as
    Executive Director.
        Welcome, Ms. Merick. You may proceed with your opening
    remarks.

      TESTIMONY OF SIMA MERICK,\1\ PRESIDENT, NATIONAL EMERGENCY
    MANAGEMENT ASSOCIATION, AND EXECUTIVE DIRECTOR, OHIO EMERGENCY
                           MANAGEMENT AGENCY

        Ms. Merick. Thank you, Chairman Peters, Ranking Member
    Portman, and distinguished Members of the Committee for
    inviting me here today. Senator Portman, it is good to see you
    again. It feels like a couple of days or weeks ago that we were
    together at your Nonprofit Security Symposium in Columbus, so
    it is good to see you, sir.
    ---------------------------------------------------------------------------
        \1\ The prepared statement of Ms. Merick appears in the Appendix on
    page 31.
    ---------------------------------------------------------------------------
        As President of the National Emergency Management
    Association, I am proud to be representing the State emergency
    management directors of all 50 States, territories, and the
    District of Columbia.
        To have success in addressing the threats of natural
    hazards, three fundamental pieces must be examined. These
    include how States help themselves, how we help one another,
    and the State-Federal partnership.
        First, States help themselves by understanding FEMA is not
    a first responder and also by maintaining a close working
    relationship with our local emergency managers. According to
    data from a report NEMA does each year with our local
    counterparts, in fiscal year (FY) 2020, State and local
    emergency management organizations managed 19,752 events
    without Federal assistance. Additionally, 27 States maintain
    their own State-funded assistance program to help citizens and
    businesses when a disaster or emergency does not meet the
    criteria for Federal assistance.
        Second, States help one another through efforts such as the
    Emergency Management Assistance Compact (EMAC). Celebrating its
    25th year of service, EMAC has deployed nearly 40,000 personnel
    in State assistance since 2016 alone. Most recently here in
    Ohio, we used EMAC during the 2016 Republican National
    Convention (RNC). This brought trained, experienced, and
    equipped officers from other States to assist Cleveland in
    managing that significant event.
        Finally, the Federal-State partnership is one of the
    bedrocks of emergency management. Whether it is the declaration
    process, shaping national policy, or programs like Emergency
    Management Performance Grants (EMPG), this partnership is seen
    in every corner of our profession. EMPG, in particular, is a
    great example. The only program in the NEMA suite of grants
    that requires a 50-50 match, and many States and local
    governments actually overmatch this program. We are grateful
    for the continued support Congress has shown over the past 18
    months by providing the supplementals.
        In my written statement I provide several examples of how
    Ohio is building capacity through programs like our Safe Room
    Rebate Program, a joint exercise with the Ohio National Guard,
    and providing virtual training opportunities. But for today's
    hearing I want to be sure I provide some recommendations on
    FEMA's future.
        First, we must clarify the role of emergency management,
    particularly as it relates to events not warranting a Stafford
    Act declaration. FEMA should be the consequence manager for the
    Federal Government regardless of that. Let FEMA be the
    coordinator of Federal resources instead of forcing us, at the
    State level, to fumble our way through the Federal Government.
        Second, we must ensure diversity and inclusion in emergency
    management. NEMA wants to work with FEMA in reviewing all
    current emergency management laws and policies through an
    equity lens, including identifying the intended and unintended
    effects of current policies on vulnerable communities.
        Finally, we must work to reduce the complexity of the FEMA
    Public Assistance Program (PAP). For too long, FEMA has talked
    about simplifying the disaster programs, only to continue
    adding to existing procedures. Federal disaster programs and
    processes are too complex, they are slow, sometimes
    bureaucratic, and, in many cases, can impede State and local
    governments' best efforts to improve outcomes for individuals
    and communities.
        In the past year, we have reiterated to FEMA our desire to
    work with them on all of these priorities, and hope we can work
    with you as well to find common ground in making FEMA and the
    emergency management professional more accessible to those it
    is intended to serve.
        Thank you for your time today, and I look forward to any
    questions you might have.
        Chairman Peters. Thank you, Ms. Merick.
        Our next witness is Jerry Hancock. Mr. Hancock serves as
    the Stormwater and Floodplain Programs Coordinator for the city
    of Ann Arbor, which is located in the great State of Michigan.
    He is appearing before the Committee today on behalf of the
    Association of State Floodplain Managers Association (ASFPM).
    He has an established record of specialized experience over 30
    years in environmental planning. His previous roles have
    included serving as the Oakland County Drain Commissioner, Land
    Development Coordinator, and Natural Resources and
    Environmental Planning Coordinator.
        Mr. Hancock, welcome to the Committee. You may proceed with
    your opening remarks.

      TESTIMONY OF JERRY HANCOCK,\1\ EXECUTIVE DIRECTOR, MICHIGAN
    STORMWATER FLOODPLAIN ASSOCIATION AND STORMWATER AND FLOODPLAIN
               PROGRAMS COORDINATOR, ANN ARBOR, MICHIGAN

        Mr. Hancock. Good morning. Thank you, Chairman Peters and
    Ranking Member Portman and Members of the Committee. I am Jerry
    Hancock, Stormwater and Floodplain Programs Coordinator for the
    city of Ann Arbor, Michigan. I am also the Executive Director
    of the Michigan Stormwater Floodplain Association (MSFA). I am
    honored to be testifying today on behalf of MSFA and also the
    Association of State Floodplain Managers.
    ---------------------------------------------------------------------------
        \1\ The prepared statement of Mr. Hancock appears in the Appendix
    on page 37.
    ---------------------------------------------------------------------------
        My written statement identifies over a dozen specific items
    for your consideration.
        Today the threat of flooding is worsening nationwide and in
    my State of Michigan. Nationally, annual flood losses are
    doubling roughly every decade, and in the past decade here in
    Michigan we have experienced numerous major flood events, most
    notable, our 500-year floods in Detroit in 2014 and again this
    year in June. There was also a 500-year flood in the Midland
    area that caused two dam failures last year. Then in 2018,
    there was an intense 1,000-year flood in Houghton. That is up
    in the UP, where I went to college.
        For the balance of my time I am going to be highlighting
    five areas where preparedness and mitigation can be improved.
    First, hazard mitigation and risk assessment. Simply put, we
    cannot prepare or mitigate if we do not know where current and
    future hazard areas are located. For floodplain managers, this
    means we must have a nationwide program of updating rainfall
    frequency and have a robust set of flood maps that identifies
    all flood hazards, as was envisioned by Congress when it passed
    the National Flood Mapping Program (NFMP).
        However, today only one-third of the nation's floodplains
    are mapped, and those maps do not include things like dam
    failure inundation and future conditions of flood areas that
    were required by the National Flood Mapping Program. Our flood
    maps in Washtenaw County were out of date shortly after they
    were adopted, due to our obtaining better topographic and
    precipitation data within just a year or two of the maps coming
    out.
        Second, preparedness and mitigation are informed through
    good planning and State and local priorities. Here in Ann
    Arbor, we have developed and maintained a local hazard
    mitigation plan for the last 15 years, and we recently received
    Building Resilient Infrastructure Communities (BRIC) funding
    for our next update. Hazard mitigation plans identify
    priorities for mitigation strategies, such as the major
    structural flood reduction project we just completed for which
    we obtained a $4 million FEMA hazard mitigation grant.
        However, other communities were not so lucky to receive
    hazard mitigation plan funding, as the State set aside in BRIC
    or State priorities was too small. FEMA should ensure that pre-
    disaster mitigation programs like BRIC provide a more balanced
    funding approach to support State and local mitigation
    priorities.
        Third, preparedness is enhanced through data sharing and
    better informing the public. For example, the Federal
    Government has been slow to publicly provide dam failure
    inundation maps, which again were required by the National
    Flood Mapping Program. Here in Michigan, where cascading dam
    failures north of Midland last spring resulted in flooding that
    went beyond the 500-year floodplain, having those dam failure
    inundation maps publicly available might have resulted in less
    damage and injury.
        Another recently evolving issue is the hindrance of flood
    insurance claims data from FEMA. FEMA requires communities to
    analyze flood insurance claims information to complete hazard
    mitigation plans and to participate in the community rating
    system. I know, as Ann Arbor is a Class 6 community rating
    system community. However, FEMA is not providing the flood
    insurance data necessary to successfully complete this
    analysis, or it is not providing it in a timely manner.
        Fourth, to be a prepared nation we must have adequate
    State, local, territorial, and tribal (SLLT) capacity. Ann
    Arbor is unique to have a full-time floodplain manager position
    like mine, whereas most communities do not. States could help
    fill this capacity gap by providing technical assistance to
    communities. FEMA does have a successful program called the
    Community Assistance Program (CAP), which supports the National
    Flood Insurance Program (NFIP). This program could be
    replicated, funded through BRIC, and be made available to build
    and maintain capacity of State hazard mitigation programs.
        Finally, preparedness and mitigation must be equitable.
    Reducing the complexity of applying for and administering FEMA
    flood mitigation grants, as was mentioned in the previous
    discussion, could assist in equitability.
        Again, my written statement goes into much more detail on
    these and other floodplain management issues and
    recommendations. Thank you.
        Chairman Peters. Thank you, Mr. Hancock.
        Our next witness is Jennifer Pipa. Ms. Pipa serves as the
    Vice President of Disaster Programs at the American Red Cross.
    She initially began her career with the Red Cross in 2004,
    after volunteering for the Disaster Action Team in Raleigh,
    North Carolina. Within one year she became the team's captain
    and swiftly moved to a role as caseworker for local families.
    Her tenure also includes working as the Operations Program
    Lead, Director of Volunteer Mobilization and Support at
    National Headquarters in Washington, D.C., and chief executive
    officer (CEO) of the American Red Cross of Central Florida.
        Ms. Pipa, you may proceed with your opening remarks, and
    welcome to the Committee.

       TESTIMONY OF JENNIFER PIPA,\1\ VICE PRESIDENT OF DISASTER
                      PROGRAMS, AMERICAN RED CROSS

        Ms. Pipa. Good morning, Chairman Peters, Ranking Member
    Portman, and distinguished Members of this Committee. Thank you
    again for the privilege to be able to testify today and share
    some of the impacts we are seeing across the Nation as we begin
    to respond to disasters.
    ---------------------------------------------------------------------------
        \1\ The prepared statement of Ms. Pipa appears in the Appendix on
    page 49.
    ---------------------------------------------------------------------------
        Disaster preparedness, response, and recovery are the heart
    of our mission, and these needs are continuing to grow,
    especially in vulnerable communities. These communities are
    disproportionately impacted by climate-related disasters.
    Through this lens, we see climate change as a worldwide
    humanitarian emergency, a defining threat in the 21st century.
        My full testimony is submitted for the record. Today I am
    going to talk about how the Red Cross responds to these
    disasters alongside partners at all levels, including the
    Federal Government, and to talk about our mission to alleviate
    human suffering.
        The increasing rate of climate-driven disasters has become
    an unsustainable burden on the most vulnerable, notably low-
    income, low-income communities of color, elderly, and people
    with disabilities. With climate change that was nearly very
    recently episodic and just a few series of acute events, it has
    now become a chronic issue with devastating impacts.
        This situation is only exacerbated by other struggles
    disproportionately impacted families face daily, a growing
    level of income disparity, the challenges with affordable
    housing, lack of access to health care, and food insecurity.
    These disparities left many families struggling well before a
    disaster ever happened. Indeed, most often the folks that the
    American Red Cross helps or serving after large disasters are
    those who have little or no resources prior to the disaster. In
    fact, in fiscal year 2020, 63 percent of the clients that we
    helped were either at or below the Federal poverty level.
        I want to share a couple of statistics that help inform our
    planning as the American Red Cross as we start to forge forward
    with this climate change initiative. The number of major
    climate-related disasters has increased sixfold in the past 40
    years. By 2030, we anticipate responding to a significant
    climate emergency every 10 to 12 days, a near-constant state of
    response, leaving our communities in a chronic state of
    recovery.
        I want to share one anecdote that was not in my written
    testimony. I had the opportunity to visit Louisiana this past
    weekend, and I spent some time at a Red Cross outreach where we
    talked with clients who had been impacted and connecting them
    with resources. It was a mom and her 12-year-old daughter, and
    as they talked to our caseworker they talked about how the roof
    of their home was totally torn off and that their home was no
    longer livable.
        The natural question to them was, ``So where are you
    staying now?'' This mom and dad, and 12-year-old daughter, who
    said sometimes she is a good big sister and sometimes she is
    not, to her two younger brothers, simply said, ``We are staying
    in our car.''
        They had to protect what little things they could salvage
    from the disaster, from a hurricane, and so they had to stay
    there to make sure that they were protected. That is just one
    story of thousands that we see every year when we respond to
    disasters.
        And so what the Red Cross is starting to do now, what we
    have begun, is using data to inform how we manage our response
    activities. We look at social vulnerability index. This allows
    us to see communities that were already struggling prior to a
    disaster. We then take the forecasted track and then we can
    apply that, so we know where we need to be first, where we are
    most likely going to be longest, and where the people need the
    most help to begin their recovery journey.
        This is not an only Red Cross organization. We cannot do
    this without partners, both at the Federal level and other
    nonprofits. In Louisiana alone, we got to work with the
    National Association for the Advancement of Colored People
    (NAACP) and Islamic Relief. These partnerships are critical.
    These help extend our reach into communities and make sure that
    every community that is impacted by disaster has the
    opportunity to connect with us and other agencies to make sure
    that their recovery begins.
        Climate change is not about the number of inches that fell
    in rain in an hour. It is not about the category of the storm.
    It is not about the acres that burned in a wildfire. It is
    about a family of five living in their car. It is about people
    who were struggling before this disaster ever happened and need
    more help now.
        We are really privileged to be able to share what the Red
    Cross is doing. I want to take the opportunity to thank our
    donors who, through their generosity, we deliver the Red Cross
    mission. Most importantly, I want to thank our volunteers, who
    give the one thing that is most precious, of their time, to the
    American Red Cross. We look forward to working with U.S.
    Congress, other branches of the government, faith-based
    community, other nonprofits and for-profits, because together
    we need to help these communities recovery.
        I look forward to your questions. Thank you.
        Chairman Peters. Thank you, Ms. Pipa.
        Our final witness is John Butler. Chief Butler serves as
    the Chief of the Fire and Rescue Department in Fairfax,
    Virginia. Prior to his time as chief, he served 26 years with
    the Howard County Department of Fire and Rescue Services and 21
    years as a United States Marine, including two combat tours. He
    brings a wealth of experience, having held roles as a
    firefighter, paramedic, Italian chief, Emergency Medical
    Services (EMS) chief, and Administrative chief before being
    named Howard County's first African American Fire Chief in
    2014.
        Chief Butler, welcome to the Committee. You may proceed
    with your questions.

        TESTIMONY OF JOHN S. BUTLER,\1\ SECOND VICE PRESIDENT,
       INTERNATIONAL ASSOCIATION OF FIRE CHIEFS AND FIRE CHIEF,
                        FAIRFAX COUNTY, VIRGINIA

        Mr. Butler. Thank you and good morning, Chairman Peters and
    Ranking Member Portman. I am John Butler, Chief of the Fire and
    Rescue Department, Fairfax, Virginia, and the Second Vice
    President of the International Association of Fire Chiefs
    (IAFC). I appreciate the opportunity today to discuss how the
    Nation can address the threat of worsening natural disasters.
    ---------------------------------------------------------------------------
        \1\ The prepared statement of Mr. Butler appears in the Appendix on
    page 55.
    ---------------------------------------------------------------------------
        America's fire and emergency services is an all-hazards
    response force. There are approximately 1.1 million
    firefighters in the United States, serving with more than
    30,000 career, volunteer, and combination fire departments. We
    are usually first on the scene and last to leave.
        The nation is facing a wider variety of threats today than
    we have in the past. These threats include COVID-19 pandemic, a
    longer, more severe wildland fire season, and an increasing
    frequency of hurricanes and other major storms. Even a national
    pandemic affects citizens in their homes, which puts the fire
    and EMS services on the front lines against all these threats.
        The past 18 months have provided a real-life stress test
    for the nation's preparedness system. Our public safety and
    medical staff have performed heroically in face of these
    threats. However, we also have found areas of improvement and
    new challenges. These include FEMA should review the National
    Incident Management System (NIMS) for long-term incidents. NIMS
    is designed for incidents that lasted a few days or weeks.
    Major incidents can take weeks or months, especially when
    recovery operations are included. The National Incident
    Management System, must account for command resources,
    supplies, and personnel for long-term events.
        Second, new partners must be included in planning and
    training. The COVID-19 pandemic demonstrated the need to
    include public health officials. Utilities, public works,
    communications, transportation, and other critical
    infrastructure disciplines must be included to prepare for
    hurricanes, tornadoes, and wildland fires. They should be
    trained in NIMS and incident command systems.
        There is a need to review mutual aid agreements and the
    expectations of the parties in these agreements, because like
    COVID-19, fire departments found that our neighbors were
    suffering from similar staffing shortages. There were concerns
    about sending resources across State or the Nation for fear of
    exposure to COVID-19. A mutual aid system needs to be
    strengthened. Complementary tools to EMAC, like IAFC's National
    Mutual Aid System can be used to move fire and EMS resources.
        Also, the reimbursement system needs to be streamlined.
    Fire and EMS departments can wait years before they are
    reimbursed for interstate mutual aid deployments.
        Fire and EMS departments are suffering from shortages in
    personnel. COVID-19 has created EMS shortages due to burnout
    and better job opportunities. Volunteer fire departments also
    face workforce challenges. Volunteers are concerned about
    taking COVID home to their families or being forced to take
    time off from their real jobs, their full-time salaried jobs,
    when they are exposed or infected.
        There also have been some equipment shortages for basic
    personal protective equipment (PPE), including gloves. The
    semiconductor shortages has created delays in the delivery of
    fire apparatus and ambulances. The Assistance to Firefighters
    Grant (AFG) and Staffing for Adequate Fire and Emergency
    Response (SAFER) programs provide important funding to address
    these equipment and personnel issues, to provide matching
    grants to local fire departments using a peer review process.
        To address the threat of growing disasters, the IAFC urges
    Congress to support programs like FEMA's BRIC and hazard
    mitigation grants. In addition, we urge FEMA to support State
    adoption of up-to-date codes and standards. We know that model
    building codes save lives and prevent property loss.
        Also, communities should engage in planning, preparedness,
    and training for potential disasters. The IAFC's Ready, Set,
    Go! program helps communities.
        I would also like to highlight the need to fund FEMA's US&R
    system. The US&R teams are supported through Federal, State,
    and local partnerships. All three entities are facing funding
    challenges.
        Finally, we ask that Congress and the President appoint
    experienced leaders for FEMA. For example, we ask President
    Biden to appoint an experienced fire service leader as the U.S.
    Fire Administrator.
        Over the past 18 months, the Nation has faced a wide
    variety of threats. The IAFC looks forward to working with you
    to address these challenges. Thank you for having me.
        Chairman Peters. Thank you, Chief Butler.
        As I mentioned in my opening statement, earlier this year
    the STORM Act was passed and signed into law. The bill grants
    FEMA the authority to work with States and tribal governments
    to establish a revolving fund that can be used by local
    governments to carry out mitigation projects and reduce the
    natural disaster risk that they face. That includes flooding,
    it includes shoreline erosion, high water levels.
        Mr. Hancock, as you mentioned in your opening comments, our
    home State of Michigan has faced record levels of flooding this
    year, as well as we have seen some extreme shoreline erosion
    along the Great Lakes. I would like you to comment as to how
    important accessing funds like will be contained in the STORM
    Act is to local governments, and also how important it is for
    local governments to have discretion as to which mitigation
    projects they would like to conduct.
        Mr. Hancock. Thank you. That is a good question. The idea
    of providing funds through the State revolving loan fund has
    been around for a while but initially it was limited to the
    sanitary sewer system, but about 15 years ago opened up for
    stormwater. In Ann Arbor we use that extensively. We, in the
    past 10 years or so, we have done probably $30 million worth of
    stormwater, mainly stormwater quality projects. So that type of
    funding is definitely a tool that is needed for communities.
    Like I said, we have used it extensively, and maybe so much so
    that we have kind of tapped out our resources in that area.
        But that is a great tool to expand for flood mitigation and
    some of the other disasters and things that you mentioned, like
    rising high waters, shoreline erosion. So there are plenty of
    mitigation activities that would benefit from this type of
    funding, and, it is always good to have another tool in the
    toolbox, so this is another tool for communities.
        I would say it is not going to replace the idea of grants,
    since there is a payback associated with the loans. Some
    communities may be limited. Here in Ann Arbor, we have a
    stormwater utility so we actually have a budget to do stuff
    like this. Some communities do not necessarily have that. But
    still, if they have like one particular project that they could
    not otherwise do, that is a great tool.
        It is definitely something that I am sure communities are
    grateful that Congress is doing, and I applaud the effort.
        Chairman Peters. Right. Thank you, Mr. Hancock.
        Ms. Pipa, in your opening statement you offered a very
    compelling story of the impact on families that these natural
    disasters can have. Unfortunately, a wide range of research has
    shown that FEMA assistance, despite the best of intentions from
    our folks at FEMA, often a FEMA assistant can actually
    exacerbate racial and economic inequalities after a disasters.
    Marginalized communities, as you mentioned, are often exposed
    to damage and have less access to resources in order to
    recover, and a trend that is only going to continue as climate
    change continues to create more frequent and more destructive
    disasters.
        My question to you is straightforward. What more can FEMA
    do to promote equity within its programs, and ensure that those
    who are hit hardest by these disasters and are generally folks
    who are economically disadvantaged and in communities of color,
    they need to have the opportunity to recover, what more should
    FEMA do?
        Ms. Pipa. As I said in our opening statement, is it not one
    agency. It is a collaboration of agencies altogether. When you
    look at a footprint like Louisiana and you look at the multiple
    parishes that were impacted and you look at the neighborhoods
    that are geographically isolated, in some cases, look at like a
    Port Sulphur all the way in Plaquemines Parish, you will see
    homes, maybe 15 homes and then another 15 miles of industrial,
    and then another 10 homes.
        So finding all of those locations and making sure we are
    connected is a job of all of the recovery agencies that show up
    there, and one of the ways we can do that is through sharing
    information and collaboration, so that when we talk to clients
    one of the things we make sure we do is make sure that they are
    connected with FEMA and that they are registered. It is one of
    the first conversations we have with our Red Cross clients as
    well.
        So making sure that we are showing each one of our
    community members what they need to do and how they can connect
    with all of the resources, including FEMA, is a critical part
    of this.
        These disasters are large in scope and scale and very
    complex, and different communities will choose to present or
    not present, for a wide variety of reasons. That is why it is
    important to have a variety of partners there on the ground, so
    that those communities feel trusted and welcome to come forward
    and apply for assistance.
        Chairman Peters. Thank you.
        FEMA is the lead agency for Federal emergency response, but
    as you mentioned we need other agencies and nonprofits to come
    together. My question, though, is to Chief Butler. Specifically
    when it comes to first responders, what more would you like to
    see Congress do to support first responders who need to be
    there first on the scene to helps communities when confronted
    with a disaster?
        Mr. Butler. Thank you, sir, and that is a really good
    question. I would start by saying we appreciate what we already
    are afforded in the form of grants, and continuing those grant
    opportunities--AFG, SAFER, and the other grants--particularly
    funding and continuing to fund the US&R system is very
    important to us, because those are the frontliners who are
    responding to these disasters at times.
        To some extent I will say the continuation of the support
    and the funding and an increase in those dollar amounts will go
    a long way.
        Chairman Peters. Thank you, Chief Butler.
        Ranking Member Portman, you are recognized for your
    questions.
        Senator Portman. Great. Thank you, Mr. Chairman, and again,
    I thank the witnesses for your testimony today, and more
    importantly for what you do every day.
        Chief Butler, we just talked a little about urban search
    and rescue. Back in 2016, you may recall we passed legislation
    that was worked on in this Committee, called the National Urban
    Search and Rescue Response Systems Act, and it enhanced
    compensation and protections for urban search and rescue teams
    and required FEMA to finance and replace certain equipment used
    by those teams.
        How has that worked? Can you give us a sense of whether
    that legislation was helpful or not, and what more could be
    done to improve that legislation? You just mentioned the
    Federal grants funding the US&R system continuing. But can you
    give us a sense of where we are with regard to implementation
    of that legislation and what else could be done?
        Mr. Butler. Yes. Thank you. We asked that Congress
    appropriate, $50 million for the US&R system in fiscal year
    2022. This funding would allow the US&R teams to replace
    current transportation assets like you have mentioned, sir,
    which are nearing the end of their lives, and the increased
    funding also would allow FEMA to conduct three or four full-
    scale exercises each year, to provide training along with
    operational readiness.
        I will stop there and answer the genesis of your question,
    how has it worked so far. It worked well. It has worked well to
    this point. But as we have talked about this morning, the
    increasing demands and the increase in weather extremes and
    other needs to deploy US&R teams requires that we keep up with
    the pace and the funding and the infrastructure.
        The US&R teams would be able to improve their capabilities
    for responding to subterranean incidents like trench or tunnel
    collapses as somewhat of an emerging threat, and also the US&R
    teams would be able to validate the use of new technology, like
    unmanned aerial systems (UAS) or robots.
        The IAFC recommends increasing the funds for the US&R
    system, to adequately catalog and validate Federal, State,
    tribal, and territorial, local search teams.
        Senator Portman. Great. Thanks, Chief Butler. I appreciate
    it. We just celebrated our US&R team locally for the good work
    that they did down at the most recent hurricanes, but we also
    had kind of a sober commemoration of the 20-year anniversary of
    9/11, where Ohio Task Force One, Dayton-Cincinnati area took
    off immediately. My wife actually saw them on the highway
    heading toward New York. She was coming from D.C. and she saw
    them in Pennsylvania, lights flashing that morning.
        It is a great system. I am a huge supporter. It is a
    classic example of State-local. There is so much training and
    so much expertise that FEMA gets essentially for free, because
    you have these firefighters and others--doctors, people with
    trained dogs and so on--and they do a lot of this just as
    volunteers, and provide so much help and resources on a
    national level. So the search and rescue teams in every one of
    our States responds with mutual aid.
        I am a huge supporter, and I think, frankly it is an
    investment that really pays off. I thank you for your service
    and thanks for what you said today, and we will follow up with
    you on your comments.
        Ms. Merick, thanks for what you do in Ohio, again. One
    thing you talked about in your testimony that I thought was
    interesting was this Safe Room Rebate Program to help prevent
    Ohioans from needing assistance from an urban search and rescue
    team, as an example. Can you talk about that and what other
    ways that individuals and families can better prepare in order
    to avoid situations that would require rescue?
        Ms. Merick. Yes. Thank you, Senator. Our Safe Room Rebate
    Program in Ohio has just been phenomenal. We have over 450 safe
    rooms that have been put into residential plots of land, and
    one of the things that we do with that is to ensure that when
    people build a safe room or they have an in-ground safe room
    that they are coordinating with their first responders to let
    them know, like the codes, the geocoding of where it is at, in
    the event debris would fall on top of that storm shelter, so
    they would know to go and clear that place first. But
    otherwise, that is pretty much the response they would have to
    do.
        Some of the other ways I think that families could better
    prepare to avoid these situations would be to make a plan for
    all hazards to include severe weather. Ensure you have included
    a communication plan. How will you let people know that you are
    OK?
        I know recently, during Hurricane Ida, I had gotten a phone
    call from a friend of mine who has family down in Louisiana,
    and said, ``You know, I can't get ahold of them. I don't know
    if they are OK. I don't know if they have power. I don't know
    if they got out.''
        So it is very important, that you have a communications
    plan and how you will reconnect, or where you will meet after
    an event. Know how you will receive information about those
    events. Have alerts active on your phone, enable them for the
    wireless emergency alert. Obtain a weather radio to keep in
    your house, work, places of worship, and other locations that
    may have your phones off or silent.
        Probably the last thing I want to make sure is if you have
    a safe room, communicate that to your first responders, and
    this is so important in the community. While first responders,
    to include our urban search and rescue and Ohio Task Force One,
    are trained to look for survivors, if you can facilitate their
    efforts by letting them know that you have one, they have a
    chance to save more people, because they will just do a drive
    by your place to make sure that that is not covered by debris,
    and then they will be able to move on.
        Senator Portman. All good advice. Thank you, and I hope
    people are listening and will listen to you. Research has shown
    that $1 of mitigation saves, on average, $6 on future disaster
    costs. We mentioned earlier that the STORM Act is in the
    bipartisan infrastructure bill that is now before the House of
    Representatives. But we also have something in there called the
    Building Resilient Infrastructure and Communities program.
    There is $1 billion for that. How important is mitigation for
    preparedness, Ms. Merick, and how has BRIC impacted Ohio?
        Ms. Merick. Senator, the first year of BRIC program, Ohio
    only received the set-aside amount. We, like most of the
    country, did not receive competitive funding due to some of the
    technical aspects of the program. Assuming passage of a
    bipartisan infrastructure bill, we will have projects ready to
    go for the competitive package that we put together for the
    first year of funding. We will need to see how those projects
    fit within the future notice of funding opportunities that come
    out from FEMA. But, of course, we do appreciate having this
    additional pot of money to be able to tap into. We just have to
    figure out, over the years, the best way to be able to do that
    with some of those technical benchmarks that we need to make.
        Senator Portman. Great. My time has expired but we will
    follow up with you on some specifics on how to improve BRIC
    going forward. Hopefully this will pass the House of
    Representatives, even this week, and we will have that ability
    for Ohio and other States to apply for those competitive
    grants. Also we will follow up with you on the bureaucracy of
    FEMA and how to reduce some of the costs and inefficiencies and
    some of the delays that you have experienced.
        Thank you, Ms. Merick. Thanks to all the witnesses. Thank
    you, Mr. Chairman.
        Chairman Peters. Thank you, Ranking Member Portman. We now
    recognize Senator Hassan for your questions. I also have to run
    over and vote, so I will also pass the gavel to you.

                  OPENING STATEMENT OF SENATOR HASSAN

        Senator Hassan [Presiding.] Thank you very much, Mr. Chair
    and Ranking Member Portman for this hearing, and a special
    thank you to all of our witnesses for the important work that
    you do to prepare our communities for natural disasters and for
    coming before this Committee today. I will add my own
    appreciation to that you heard from the Ranking Member and the
    Chair for all of the volunteers and first responders and
    disaster preparedness folks in our States and our communities.
    You do lifesaving, life-stabilizing work and you help our
    communities be resilient in the face of just incredible
    difficulty. I just want to thank you all for what you do.
        I want to start with a question to Mr. Hancock. I am Chair
    of the Subcommittee on Emerging Threats and Spending Oversight
    (ETSO), so I am particularly focused on ensuring that the
    Federal Government spends taxpayer dollars efficiently and that
    we reduce waste, fraud, and abuse.
        In 2018, as Senator Peters mentioned in his opening, a
    FEMA-sponsored report indicated that every dollar spent on
    Federal mitigation grants $6 in savings. Mr. Hancock, how can
    we improve the ability of States and localities to invest in
    mitigation before a disaster strikes?
        Mr. Hancock. I think the best way to do that is with the
    Federal Government partnering with the States to increase the
    capacity of States to respond. It is more easy for States to
    assist communities. With FEMA providing assistance to the
    States to increase their particular floodplain management
    capacity--in other words, staffing--so that they can, in turn,
    then work with the local communities, we think that is an
    efficient way to go about that.
        An example, Sima Merick from Ohio mentioned that Ohio did
    not get any of the competitive BRIC funding. Neither did
    Michigan--only the set-aside--and that is an area where within
    BRIC there could be a program within BRIC that just simply
    funds State assistance to increase the capacity of State
    governments to assist the local communities.
        Senator Hassan. Thank you. To Ms. Merick, for a long time I
    have heard from emergency management professionals in my State
    about the need to reduce the complexity of many FEMA programs
    and processes. In 2017, FEMA announced an initiative to co-
    locate teams of FEMA field staffers with State and local
    partners to improve communication and coordination between
    Federal, State, and local partners. These teams, known as FEMA
    integration teams (FITs), were created to help State and local
    partners more easily navigate some of FEMA's bureaucracy.
        Emergency management officials in New Hampshire have
    responded positively to the creation of a FIT in my State, in
    New Hampshire. So based on your perspective as President of the
    National Emergency Management Association, have you found that
    FITs have been helpful in bridging the gap between State,
    local, and Federal partners?
        Ms. Merick. Today we do not have a FIT team. Let me make
    sure, am I unmuted.
        Senator Hassan. There you are, yes.
        Ms. Merick. OK. In Ohio we do not have a FIT team member or
    an integrated team, but reviews from other State directors that
    do have been very positive.
        Recently I was at FEMA Region 5 in Chicago, and my partner
    States, the majority of them do have one or two in their State
    that have been helpful, in the area in which they are hired, in
    the preparedness and planning sections, to help navigate
    mitigation and working in some of the other programs.
        I do not have a tremendous amount on this, but I do know
    that as my colleagues and I have talked about it they have been
    pleased with the FIT members that they have on their teams from
    FEMA.
        Senator Hassan. Thank you for that, and I would look
    forward to learning more about reactions from other States,
    because it seems to me that this might be an area that we want
    to expand on.
        Ms. Merick, I have another question for you. Federal
    disaster recovery funds administered by FEMA allow a small
    percentage of each grant to be used to cover management costs
    like grant processing or oversight. Currently, management costs
    awarded for one disaster can only be used for that particular
    disaster.
        Ms. Merick, what are the benefits of changing FEMA's policy
    so that it permits States and localities to utilize dollars
    provided for management costs across all open declared
    disasters?
        Ms. Merick. Sure. Thank you, and thank you very much for
    asking that question. States can utilize a certain portion of
    disaster costs to cover some of the administrative costs of the
    event. Currently, those funds are limited to a specific
    disaster, as you indicated. This creates a disincentive to
    close out disasters quickly as States naturally want to utilize
    as much of that funding as possible, and by keeping it open
    they can do so.
        If management costs were disaster agnostic, States would be
    able to focus more on the recovery process than the
    administrative minutiae of tracking hours per disaster. If we
    were allowed to roll over those management costs we could not
    only close out disasters much faster but also utilize those
    funds to build capacity in the long term for anything that we
    may face.
        I should note here that NEMA was grateful to your staff for
    working with us last year in getting legislation drafted, and
    hope we can get something introduced again soon.
        Senator Hassan. I thank you for that and I would look
    forward to continuing to work with you on that.
        I do have one more question but I think it would take us
    over time, so I will submit it for the record.
        I am now going to recognize Senator Rosen, who should be
    with us virtually.

                   OPENING STATEMENT OF SENATOR ROSEN

        Senator Rosen. Thank you, Chair Hassan. I appreciate that.
    I want to thank Chair Peters for holding this hearing. It is
    really important as natural disasters have been occurring more
    frequently all around the country and all around the world.
        I want to talk a little bit about wildfires, because across
    the country, but particularly in the West, devastating
    wildfires continue to worsen every year. They pose a serious
    threat to human life, to our health, to our personal property,
    to wildlife, and, of course, to our public lands.
        In 2020, wildfires burned more than 10.3 million acres and
    destroyed more than 17,000 structures. Already this year we
    have seen over 45,000 wildfires burn nearly 6 million acres of
    land, including several recently affecting Nevada, like the
    Tamarack and Caldor fires. It is why I have been fighting for
    increased funding to mitigate our current wildfires and prevent
    further catastrophes, and recently led a group of western
    Senators in urging committee chairs to include these resources
    in our reconciliation package.
        Climate change has increased the severity and frequency of
    wildfires and other natural disasters. Many say we no longer
    have a fire season. Unfortunately, fires happen year-round now,
    and we have to address that.
        Ms. Merick, can you talk about the challenges that
    emergency managers face when dealing with continuous and
    worsening natural disasters year after year, without any
    intervening period of relief?
        Ms. Merick. Sure. Thank you very much. As we move forward,
    and we have learned a lot with this large-scale and ongoing
    response with COVID, that, our other tasks, our preparedness,
    our response or mitigation to natural disasters does not stop.
    We continue to have to be prepared to work on multiple events,
    activate or have separate activations simultaneously, at the
    same time, to make sure that we are preparing and coordinating
    and communicating not only with our locals, who were locally
    disasters start, work, and end at the local level, right? Then
    we are there when they exceed that capacity, and we also have
    that ability, the Federal Government.
        But we have to also work with our Federal programs and our
    Federal partners to ensure that we know exactly how we execute
    those programs and what is on the table those days as we
    respond and we move forward and we know what programs we have
    to make sure we are executing properly. It is always a
    challenge.
        Senator Rosen. Sorry. Thank you. By the way, I think my
    Internet skipped a beat there, so I did not mean to interrupt
    you. Thank you. I thought you were done.
        I am going to move on with the same topic but to Chief
    Butler, because the current disparity in pay between Federal
    and non-Federal wildland firefighters, those hotshots, they
    call them, has led to a shortage of our Federal firefighting
    personnel. It limits our nation's ability to respond
    increasingly, again, to these natural disasters.
        Chief Butler, how can Congress help with the recruitment
    and retention of wildland firefighters?
        Mr. Butler. Thank you, ma'am. That is a really good
    question, and being a structural firefighting fire chief my
    entire experience has been with structural fires and
    communities as such. But my brothers and sisters in the
    wildland community are somewhat losing out in the competition
    when it comes to pay and salaries. There are a lot of choices
    out there, and a lot of opportunities for responders.
        Senator Rosen. I am sorry. Go ahead.
        Mr. Butler. Yes. So keeping up with the salary of first
    responders and firefighters is very important. We know it, on
    the structural side, that the wildland community is kind of
    behind in paying salary.
        Senator Rosen. We are hoping that we are going to be able
    to pass some legislation that will create permanent, year-round
    positions for wildland firefighters, hopefully adding at least
    1,000 more to help the cause--help the fight, not the cause--
    help the fight in this and pay them what they deserve to be
    paid. We really appreciate everything that they do out there to
    protect us.
        Of course, you cannot fight a wildfire if you do not have
    water, so I want to move on and talk about drought, because 90
    percent of the West is currently experiencing drought. The
    majority of areas are subject to significantly below average
    precipitation, extended dry periods. Again, this is one of the
    reasons we are having these wildfires.
        Just last month, the Bureau of Reclamation issued a water
    shortage for Lake Mead, which provides water and generates
    electricity for more than 20 million people. The declaration
    means that Nevada is going to lose 7 percent of its allocation
    of water. In August, Nevada Governor Sisolak and nine other
    western Governors sent a letter to President Biden requesting
    that he declare a FEMA drought disaster in the West, allowing
    States to access Federal resources.
        Like I said, wildfire and drought unfortunately go hand in
    hand. Ms. Merick, again, can you discuss the benefits of FEMA
    assistance in responding to the drought, and what actions
    should our communities be taking to prepare for some of the
    extreme drought as climate change begins to exacerbate
    conditions and, like I said, increase wildfires, just being one
    of them?
        Ms. Merick. Sure. Thank you. As we respond to any event,
    Senator, I think it is important that we focus on our basics of
    response. If we go back and look at our preparedness actions we
    continue to communicate with our locals. We refer to our action
    plans, in which we need to ensure the response is being
    coordinated with the appropriate levels of the agencies,
    whether that is Federal, State, or locally, and then talk about
    the mitigation measures that have already been designed to move
    forward, or the pre-disaster mitigation measures that folks are
    starting to undertake, and ensure that those are being put out
    there and that people understand that they are happening and
    they can tap into those, and how do they tap into those
    events--I am sorry, those programs in which they can receive
    some guidance or preparatory actions.
        Senator Rosen. Thank you. I appreciate all of you for being
    here. Of course, in the West extreme heat, drought, wildfires,
    they are going to continue to plague us, as well as other
    disasters around our Nation. I appreciate the work and effort
    that you all put into helping us solve these problems. Thank
    you.
        Ms. Harris. Thank you, Senator Rosen. Senator Johnson, are
    you--you are not available. OK.
        I do have another question for Mr. Hancock. Climate change
    is increasing the cost of disaster response and recovery. The
    National Oceanic and Atmospheric Administration (NOAA), tells
    us that 2020 set numerous records--22 extreme weather and
    climate events, which each caused $1 billion or more in losses.
        Recent disasters, like the flooding that impacted New
    Hampshire communities this summer, underscore the need for
    action to safeguard the nation's infrastructure, protect
    businesses and communities, and safe taxpayer dollars.
        The bipartisan infrastructure package includes funding that
    I pushed for to help communities invest in coastal resiliency
    measures. Mr. Hancock, could you discuss the importance of
    investments to help prepare for and mitigate damage from more
    frequent flooding events and other disasters spurred by the
    changing climate?
        Mr. Hancock. Yes. The amount of disasters, like you said,
    are increasing so much so that communities are, as a few other
    people have said, it is one disaster after another after
    another. The capacity issue, I think, kind of comes back in
    this question, that States or communities do not have the
    capacity to respond to one after another after another. This is
    where we could use assistance from the Federal Government to
    help us increase our capacity during times when we are not
    having disasters.
        This was talked about a little bit earlier, but a lot of
    the funding for just disaster response and recovery comes from
    disasters. It would be more helpful if it were more consistent
    and were not tied to individual disasters, and increase
    capacity unrelated to events.
        Senator Hassan. Got it. I also just wanted to follow up on
    that, because generally we have considered historic flood
    patterns when we look at planning and investment and
    mitigation. How important is it for State and local
    governments, as well as the Federal Government, to consider
    future flood risk in their infrastructure plans?
        Mr. Hancock. That is a great question. So just like you
    said, most flood maps and most of the planning we do is based
    on what happened in the past. And to use one example, me, I
    work at a local community and respond to building proposals.
    When buildings are built they are not built just for today.
    They are built for decades. So to plan for a safe building
    based on what happened in the past may not necessarily make
    that building safe in the future. You can apply that logic to
    any infrastructure, whether it be a dam or stormwater pipes.
        But when we are building infrastructure we are really
    building those for the future, and so having future conditions
    shown on flood maps would give communities the ability to plan
    appropriately for their infrastructure and buildings of the
    future.
        Senator Hassan. Thank you for that answer.
        I am just going to check with our crew here. Is Senator
    Padilla available? OK. So next up is Senator Padilla.

                  OPENING STATEMENT OF SENATOR PADILLA

        Senator Padilla. I wanted to follow up on some of Senator
    Rosen's questions, but specific to California, where our most
    recent wildfire season was the worst on record. In 2020, the
    State experienced more than 10,000 fire incidents, more than
    4.2 million acres burned, and more than 10,000 structures were
    damaged or destroyed.
        California residents, both north and south, relied on local
    and regional fire departments throughout the State to provide
    expedient mobilization and response to ever-worsening fire
    seasons. However, as Chief Butler mentioned in his testimony,
    the National Fire Protection Association found that a third of
    the surveyed department stations did not have access to backup
    power, they are also suffering from either mold or asbestos,
    old ventilation system, and other environmental problems, and
    many do not have proper quarters for female fire and EMS
    personnel that serve as well.
        So a question for Chief Butler. It is unconscionable to ask
    firefighters to fight ever-worsening fires when they do not
    have safe and adequate facilities to work in. Can you just
    share with the Committee what infrastructure shortcomings mean
    for the morale of personnel and the capabilities of the unit?
        Mr. Butler. Oh, you hit it right on the head, sir, with the
    word ``morale,''--morale equals mission success, and mission
    success equals morale. Taking care of the health, safety, and
    wellness of the responders is, and should be, paramount. There
    are many fire stations that would be condemned in many other
    communities. Our mental health is increasingly becoming--always
    should be and has been, but there is a lot of spotlight on
    reduction, carcinogen exposure reduction of firefighters, and
    there is a whole body of knowledge that shows that we need to
    pay attention to our personal protective equipment, keeping up
    to date, and being funded, funded appropriately for the proper
    PPE and fire stations and apparatus that we are on.
        Senator Padilla. I particularly appreciate you mentioning
    the impact on mental health of firefighters. I know the
    International Association of Fire Fighters (IAFF) has
    prioritized behavioral health for its members in the
    communities that everybody serves. I appreciate that, and I
    welcome ongoing conversation about what else this Committee and
    the Senate overall can do to support infrastructure needs of
    fire and emergency service.
        But while I still have a few minutes I also wanted to raise
    the issue of the Stafford Act, which governs FEMA's disaster
    efforts. It has given short shrift to communities facing
    wildfires specifically. Due to the unique nature of wildfires,
    many California communities have experienced difficulty after
    difficulty in the wake of recent catastrophic wildfires
    regarding reimbursement, regarding debris removal, disaster
    assistance eligibility, specifically individual assistance, not
    the public assistance, home insurance, and relocation
    assistance.
        So first to you, Chief Butler. Do you have any specific
    thoughts on how FEMA could be more inclusive of the needs of
    the fire and wildfire response needs?
        Mr. Butler. Yes, Senator. It starts with the leadership and
    the selection of the positions to be filled by credible and
    competent Administrator.
        OK. I was kind of frozen there for a second. So, yes. I
    will stop there.
        Senator Padilla. Yes, OK. No, I appreciate that. We will
    follow up. And just on the same topic, in my time remaining on
    the same topic let me ask a question to Ms. Pipa. As a leading
    partner of FEMA in disaster response, do you have any ideas or
    suggestions on how FEMA regulations could be updated to better
    respond to the new reality of extreme weather and better
    support to better response to wildfires?
        Ms. Pipa. Thank you for the question, Senator. There are a
    couple of ways that we can work together, and I think making
    sure that folks are connected into the system and that not just
    our agency but other nonprofits and for-profits and religious-
    based entities are there, helping to extend the reach into each
    one of those communities.
        As we have seen, especially with the wildfire season over
    the last couple of years, it has begun much earlier, it has
    gone longer, and we have seen more ongoing destruction.
        One of the things we look at is refreshing our workforce
    and making sure that we have additional volunteers to come out
    and support. At the same time, making sure that we are
    connecting with FEMA, both at the State level and at the
    national level, to make sure that we are aligned and that we
    know that we are both covering the communities that need those
    impacted and need the assistance in order to begin their
    recovery process.
        Senator Padilla. Thank you very much. I look forward to
    following up with everybody. Thank you, Madam Chair.
        Chairman Peters [Presiding.] Thank you, Senator Padilla.
    Senator Ossoff, you are recognized for your questions.

                  OPENING STATEMENT OF SENATOR OSSOFF

        Senator Ossoff. Thank you, Mr. Chairman, and thank you to
    our panelists in person and joining us remotely.
        Ms. Pipa, I would like to discuss with you issues of
    particular concern to my constituents in coastal Georgia. Just
    a few weeks ago, I visited St. Marys in Camden County, Georgia,
    and convened local leaders to discuss the community's readiness
    for more intense tropical storms, storm surge events, coastal
    inundation.
        The good news is that the bipartisan infrastructure bill,
    which the Senate passed last month, includes more than $12
    billion for coastal resilience programs, improving drainage
    infrastructure, marshland remediation, the weatherization of
    public and private buildings, improvements to evacuation routes
    to assist coastal communities like those in Georgia's Golden
    Isles.
        While these investments will help to mitigate the effects
    of disasters, we also need a prepared public, prepared local
    officials, and a robust and adaptable disaster response system.
        I have two questions for you on this subject. The first is,
    can you describe what the American Red Cross is doing with a
    focus on the coastal Southeast and coastal Georgia to adapt
    your organization and resource allocation for events like
    those? The second question is, would you or a senior American
    Red Cross executive commit to joining me for a roundtable with
    local officials and community leaders in coastal Georgia to
    help inform the public about steps they can take to prepare
    themselves and to coordinate a better cross-jurisdictional
    preparedness program for those kinds of events?
        Ms. Pipa. Thank you for both questions. I think to the
    first one, historically what we have seen is that there were
    certain geographic areas of the country that took preparedness
    seriously. We talk about the Gulf Coast. We talk about the West
    Coast. As we have seen over the past five to six years, that
    climate change is now exposing area that would not typically
    take preparedness actions, to take them.
        Part of what the Red Cross is doing is trying to reach all
    of those communities with not only education that is in person,
    in schools, to kindergartners, to second-grade with Pillowcase,
    and then we have third through fifth with Prepared with Pedro.
    But we also do it through an app now, that is just a free app
    that folks can download.
        One of the things we hear a lot in feedback is becoming
    prepared is expensive. It is a cost allocation, and for a
    family that is operating at or below the poverty level they do
    not have the luxury of being able to build a kit and be
    prepared. A lot of what we focus on are non-financial
    components that they can take into account--communications
    plans, as Sima talked about, making sure that you are calling
    someone; copies of your documents; knowing a hurricane escape
    route. There are absolutely no-cost preparedness actions that
    each family along the coast can talk.
        You talk about investing in a better infrastructure to
    facilitate evacuations, right. As a family, we own part of that
    responsibility to know how we need to get out of that area and
    to listen to those officials.
        So it is ongoing. We find that we educate parents but then
    we also educate the kids at school, which takes it home to them
    and helps. But what we see is messaging, time and time again,
    especially from leadership and elected officials. As you start
    into hurricane season it is a prime time. After a disaster you
    have seen, from a national perspective, people are more
    receptive to preparedness messaging and taking additional
    preparedness actions. Those are all pieces that the American
    Red Cross supports.
        For your second question, for someone to commit to come
    down, absolutely. We have a fantastic regional executive there
    in Georgia or someone from National Headquarters would be happy
    to join you and facilitate a roundtable.
        Senator Ossoff. Thank you so much, ma'am. I appreciate that
    commitment. I am looking forward to continuing to work with
    you.
        My next question is for Mr. Hancock, please. Mr. Hancock,
    are you still with us?
        Mr. Hancock. Yes.
        Senator Ossoff. Excellent. Mr. Hancock, Georgia hosts about
    24 million acres of forests and woodlands. Approximately 91
    percent of this forest is privately owned. Georgia, therefore,
    has more privately owned acres of timberland than any other
    State in the Nation. I have heard consistently from private
    forest landowners in Georgia who are struggling to adapt and
    respond to natural disasters, that the resources are not in
    place at the Federal level to ensure that they are made whole
    and can continue with their work and the cultivation of what is
    a crop after, for example, a major tropical storm that fells
    forests or a major fire.
        As we anticipate increasingly severe natural disasters,
    like hurricanes and wildfires due to climate change, we will
    have to commit greater resources to protecting and cleaning up
    forestlands and remediating damage to forests, conducting site
    preparation and replanting.
        I discussed with Ms. Pipa the $12 billion in coastal
    resilience investments in the bipartisan infrastructure bill.
    Fortunately, we were also able to help secure--and I want to
    give a shout-out to Senator Reverend Warnock, my colleague, for
    his efforts on this front as well--more than $5 billion in the
    bipartisan bill for forest management.
        But can you please share, Mr. Hancock, your perspective as
    a local environmental land and resources management
    professional what Georgia managers and owners of forestry can
    do to better prepare for natural disasters and what the Federal
    Government can do to better support private landowners of
    forests? Thank you.
        Mr. Hancock. Yes. I think the answer to that is in
    preparedness, and preparedness starts with identifying hazards
    and potential hazards. Like I talked about with flood mapping,
    there are large parts, two-thirds of the floodplains in the
    country that are not mapped.
        But the idea of the National Flood Hazard Mapping Program
    is that these maps should be showing all hazards. That would
    fit in with the forestry in Georgia, that maybe if they had
    these flood maps that showed all hazards it would help people
    be more prepared to respond to disasters, just so they know
    that these disasters are a potential there.
        Having data that makes for good maps is critical. One
    example is precipitation frequency estimates, and that is
    something that is typically done by NOAA, in something called
    Atlas 14. In Atlas 14, the program for updating that is very
    disjointed, and each part of the country has a different method
    of getting money from States to help them or from the Federal
    Government. Shoring up that program and making it whole across
    the nation--I mean, there are parts of the country where the
    rainfall data is 30 to 50 years old. If we could have a
    consistent program and update that, say, like every five years,
    people might be able to prepare better for disasters. It would
    make mapping of these disasters much more efficient and
    accurate.
        I think that is the answer, is having better data to
    prepare for these type of disasters.
        Senator Ossoff. Thank you, Mr. Hancock, for your response.
    Mr. Chairman, I yield.
        Chairman Peters. Thank you, Senator Ossoff.
        I would like to take this opportunity to thank our
    witnesses for joining us today for this discussion. As we
    commemorate National Preparedness Month, it is important that
    we all take the time to hear from experts on how we can improve
    our nation's preparedness at all levels of government. This is
    increasingly important as climate change increases both the
    frequency and the severity of extreme weather events in our
    country.
        I want to thank our witnesses for their testimony as well
    as thank them and all emergency responders all across our
    country as they have been working to address a very challenging
    COVID-19 pandemic as well as all of the other disasters that we
    face.
        I also want to thank Ranking Member Portman for holding
    this hearing with me, as well as all the great work that we
    have been doing together on this topic.
        The record for this hearing will remain open for 15 days,
    until 5 p.m. on October 14, 2021, for the submission of
    statements and questions for the record.
        This hearing is now adjourned.
        [Whereupon, at 11:24 a.m., the hearing was adjourned.]

                                A P P E N D I X

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