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Resilience Valuation and Planning for Solar and Storage on Critical Infrastructure

This case study report documents the City's project evolution and the entrepreneurial ways through which the City approached the questions of how solar and storage could support their resilience efforts and how to value and pay for solar-plus-storage systems. This report documents how and why the City of Reno came to the specific conclusion to integrate solar and storage into their Public Safety Center retrofit project and apply for Federal Emergency Management Agency (FEMA) Building Resilient Infrastructure and Communities (BRIC) funding. (The City of Reno applied for and was awarded FEMA BRIC funding in January 2021; leveraging work that was underway in this project.) This report provides an overview for other local governments to draw inspiration from when considering how to prioritize community values and pursue multi-stakeholder dialogue around resilient energy solutions. The City of Reno's experience can serve as a starting point for other communities interested in valuing the resilience benefits of solar and storage.

14 SOLAR ENERGY

Who Has the Upper HAND in a Hurricane? Flood Risk, Weather Shocks, and Property Prices

Flood risk is increasing in the United States, but how property markets respond to this hazard is unclear. Focusing on Houston, Texas, we analyze changes in flood risk capitalization in property prices after three major Gulf Coast hurricanes. Here, we compare two measures of flood risk–floodplain designations from the Federal Emergency Management Agency (FEMA), and a hydrologically-imputed, continuous measure, Height Above the Nearest Drainage (HAND). HAND affects property prices after a storm in intuitive ways, while we observe counterintuitive post-storm price premiums within FEMA floodplains. Plausibly exogenous measures like HAND may be useful tools for characterizing flood risk in economic analyses.

Plough, Julian A. [University of North Carolina, C

Climate change and federal aid disbursements after Hurricane Harvey: an extreme event attribution analysis

The role climate change plays in increasing the burden placed on governments and insurers to pay for recovery has not been extensively explored and is the focus of this study. This study examines the impacts of climate change attributed flooding on federal disaster aid disbursement in Harris County, Texas following Hurricane Harvey in 2017. Our approach uses flood models to estimate the amount of flood damages attributable and not attributable to climate change under two climate change attribution scenarios from peer reviewed studies: 20% and 38% increases in rainfall associated with the hurricane due to climate change. These estimates are combined with census tract-level disbursement data for FEMA’s National Flood Insurance Program (NFIP) and the Individual Assistance (IA) part of the Individuals and Households Program. We employ spatial lag regression models with direct and spatial spillover effects to analyze the relationship between a tract’s flood damages—both attributed and not attributed to climate change—and federal disaster aid. We find that both types of flood damage shape federal aid disbursements, but that climate change attributed damages tend to have larger effect sizes (elasticities) especially for IA. Specifically, for a 1% increase in additional climate change attributed damages per household in a census tract (under the 20% scenario), expected NFIP levels in that census tract are 0.26% higher and IA levels are 0.3% higher. Implications center on federal funding in an era of climate change.

FEMA

Exploring Wildfire & Energy data toward State Prioritization Index (WESPI)

Energy infrastructure can both induce and suffer risks from wildfires ranging from direct damage to energy assets such as substations and power lines to Public Safety Power Shutoffs. Recent wildfire events underscore the need for data-driven approaches that help states and utilities proactively plan for wildfire risk. Existing national tools such as Federal Emergency Management Agency (FEMA)’s National Risk Index (NRI) are valuable for community hazard planning. However, they are less suited for energy infrastructure, as they emphasize population and building exposure rather than system vulnerabilities. In this paper, we explore relationships between energy and wildfire data and present a Wildfire-Energy State Prioritization Index (WESPI). Our methodology combines data from the US Forest Service’s Fire Simulation (FSIM) dataset with energy resilience metrics, historical fire incidents, and geospatial data on transmission lines and fire stations. Correlation analyses suggest that FSIM burn probability is more strongly associated with power outage metrics (ρ = 0.32) than NRI wildfire frequency, and counties with a greater density of fire stations experience more frequent, but less intense wildfires. We further leverage data for burn probability, transmission line density, and fire station density to develop a Wildfire-Energy State Prioritization Index (WESPI) to highlight counties where wildfire hazard, infrastructure exposure, and limited suppression capacity converge. The index provides a consistent, scalable framework for state energy offices and utilities to screen counties for vegetation management, optimization of outage management system deployment, and to inform wildfire mitigation plans.

Critical infrastructure

Data Repository for Multi-Objective Urban Observational Strategies: A risk-based framework for expanding flood sensor networks.

These data support the manuscript "Multi-Objective Urban Observational Strategies: A risk-based framework for expanding flood sensor networks." These data are generated to allow water managers to reason about optimal locations to expand a flood observation system from multiple perspectives, specifically focusing on flood hazards, and population exposure to flooding. The data included are a) a shapefile of individual sensor locations b) a shapefile of river reach catchments, c) raster of FEMA flood likelihood layers d) shapefile of population locations and population socioeconomic characteristics. The code is written in R and includes all files necessary to generate the figures for the associated manuscript. Interactive maps of the final calculated maps of hazard, vulnerability, exposure, and risk are also included as html files.

54 ENVIRONMENTAL SCIENCES

Updates to USA Structures (Phase 3 Prototype): 2023-2024 Technical Report

The Oak Ridge National Laboratory (ORNL) team has successfully innovated geospatial data feature mapping and postprocessing workflows to support the USA Structures project supported by FEMA. This technical report highlights significant updates, improvements, and innovations for the USA Structures dataset, focusing on nine priority states.

97 MATHEMATICS AND COMPUTING

Estimates of the Economic Impacts of Long-Duration, Widespread Power Disruptions in Puerto Rico

A typical electricity customer in Puerto Rico experienced nearly 27 hours of power interruptions in 2023–with many customers experiencing extremely long duration outages during a single event (i.e., greater than one month). This project involved conducting state-of-the-art surveying to assess the direct costs of power outages occurring across Puerto Rico, developing customer-specific models to estimate future costs over varying outage durations, and comparing these estimates to FEMA’s Value of Unit Service for Electricity. We estimate that a territory-wide power outage may cost customers $\$1$, $\$5$ and $\$29$ billion during one-, 14-, and 30-day interruptions, respectively. However, these are lower-bound estimates because our study focused on direct economic costs and, by necessity, did not fully incorporate (1) indirect impacts to the economy; (2) costs to repair or replace damaged utility infrastructure; and (3) the broader societal consequences including increased morbidity- and mortality-related costs. The information contained in this study can be used to estimate the direct economic value of past or proposed investments in power system resilience. We conclude with a discussion of this study’s limitations and suggest additional research to improve stakeholder understanding of the impacts of power outages across Puerto Rico.

29 ENERGY PLANNING, POLICY, AND ECONOMY

A North Carolina Retrospective: Major Outage Event Trends & Hurricane Helene using TASTI-GRID

The impacts of Hurricane Helene in September of 2024 showed magnifying effects on the number of major power outages reported both during and after the catastrophic weather event. The affected areas on the western edge of North Carolina, particularly Buncombe County (Asheville), endured a disproportionate number of outage impacts than surrounding counties atop the Piedmont Plateau. In 2024, each of the counties with the highest frequency of major outage events received at least one category of FEMA Disaster Declaration following Hurricane Helene. While the storm’s impacts certainly skewed 2024’s yearly major outage frequencies, we use TASTI-GRID to identify existence resilience challenges in the years prior to 2024 that may have given way to understanding how geography, topography, population density and other factors have compounding effects on existing resilience challenges in Buncombe and Mecklenburg counties, specifically.

24 POWER TRANSMISSION AND DISTRIBUTION

Klickitat Valley Health Central Utility Plant Modernization

This project replaced legacy heating and cooling equipment at Klickitat Valley Health (KVH), a rural hospital in Goldendale, Washington. Work included constructing a new chiller building, installing modern hydronic piping systems, replacing the main Emergency Department air handler (Air Handlining Unit (AHU-1)), upgrading electrical systems, and converting the Emergency Department wing from electric reheat to hydronic heating and cooling. Commissioning, testing, adjusting, and balancing were completed under this grant. These upgrades improve energy efficiency, operational resilience, and system reliability while preparing the campus for future electrification and renewable energy integration. They also support growth in healthcare services for a rural population. The project directly reduces energy costs and provides a foundation for future decarbonization measures, including a FEMA-funded microgrid and a large-scale ground source heat pump (GSHP) project. These follow-on initiatives would not have been possible without the hydronic backbone built through this project.

32 ENERGY CONSERVATION, CONSUMPTION, AND UTILIZATI

Stakeholder-guided holistic, Adaptive Framework for enhancing community Energy Resilience (SAFER) (Final Technical Report)

The Stakeholder-guided holistic, Adaptive Framework for enhancing community Energy Resilience (SAFER) project advances resilience science and engineering by addressing challenges in rural Kansas communities where aging infrastructure, extreme weather, and socioeconomic disparities heighten vulnerability to energy disruptions. Traditional approaches often focus on technical performance while overlooking community concerns and priorities. SAFER responds by integrating community perspectives with advanced analytical frameworks to create a holistic model for measuring and improving resilience. Project objectives included developing novel resilience metrics, advancing modeling frameworks that capture interdependencies across infrastructures, and embedding community-centric indicators directly into planning processes for distributed energy resources. The key technical innovations included the creation of self-organizing map (SOM)-based indices for objective resilience quantification, hetero-functional graph theory (HFGT) models linking power, water, transportation, and community assets, and graph neural network (GNN) tools for identifying critical nodes in complex systems. Community-centric energy planning was demonstrated through optimal siting and sizing of (photovoltaic) PV and battery storage, ensuring resilience enhancements also addressed energy burden and energy insecurity. SAFER engaged community partners in Dodge City and Ford County through surveys, focus groups, and workshops, generating more than 600 responses that established baseline measures of energy burden, financial insecurity, and willingness-to-pay to avoid outages. This data, organized in terms of a community capitals framework, informed the development of weighted reliability indices that better reflect community costs than traditional utility metrics. SAFER’s GNN-based critical node identification framework identified expert-labelled critical nodes with over 99% accuracy, while also uncovering additional functionalities essential for proactive resilience planning. The project’s models demonstrated that optimal PV and storage deployment could improve resilience indices by over 11 percent, with dispatch strategies further enhancing outcomes, confirming both the technical effectiveness and economic feasibility of these approaches. Through its combined emphasis on rigorous modeling, community-focused planning, and community engagement, SAFER advances the state of resilience research while delivering direct benefits to rural communities. The project provides tools, guidelines, and resilience heatmaps that help utilities, local governments, and residents better anticipate disruptions, prioritize investments, and strengthen the capacity to withstand and recover from energy-related hazards. Furthermore, the developed HFG and GNN frameworks are designed for transferability, allowing them to be adapted for resilience planning in other communities with minimal retraining. This inductive learning capability provides a scalable pathway to extend the SAFER project’s impact. Thus, creating a foundation for a nationally applicable model of infrastructure resilience. Additionally, the HFG can also be extended to include other FEMA community lifelines.

14 SOLAR ENERGY

History of the Chemical Stockpile Emergency Preparedness Program – Volume 2: Lessons Learned (Final Report 2026)

The CSEP Program involved multiple federal agencies, multiple states, and numerous local units of government. The involvement of diverse agencies at different levels of government led to conflict and difficulty in resolving issues. That, in turn, led to slow progress in achieving program goals. Program management was criticized repeatedly by the U.S. General Accounting Office (GAO). After other mechanisms for interagency coordination had failed to give the desired results, FEMA and the Army agreed to form site-specific and national-level IPTs. The IPTs worked well to break the logjam and accelerate implementation of the program. Key elements of the IPTs’ success included constant interagency communication, solving problems at the lowest level, and obtaining buy-in from higher authority. The IPT technique could be applied to other emergency management and homeland security programs that require interagency coordination.

45 MILITARY TECHNOLOGY, WEAPONRY, AND NATIONAL DEF

Characterization of Harsh Environments, At-Risk Microgrid Components, and Hardening Technologies (Report Version 0.1)

Microgrid implementation can help improve electrical service, reliability, and resilience for localized communities. However, they may be susceptible to damage from natural disasters and extreme weather events, which often coincide with times of greater community dependence on microgrids due to likely increased vulnerability of equipment on the main grid. Microgrid equipment can be protected against these hazards through various hardening techniques. The selection of hardening mitigations may depend on the actual risk of the hazard in the specific location and for the specific type of system, as well as cost and feasibility factors. This report summarizes a framework that can be used to characterize risk to a microgrid system from a list of natural hazards enumerated by FEMA. We also describe hardening techniques and mitigations that can be used for specific energy generation, storage, loads, and power delivery elements within a microgrid.

24 POWER TRANSMISSION AND DISTRIBUTION

Strategies for Flood Resilience and Grid Investment Among Iowa's Electric Distribution Utilities

Flooding poses a growing threat to Iowa's electric distribution system, yet utilities face significant data and modeling challenges in planning effective resilience investments. This report provides a foundational assessment of how distribution utilities in Iowa, investor-owned, municipal, and cooperative, approach resilience planning, with a focus on flood risk. It combines hazard characterization, review of state and utility practices, and application of NLR's Energy Resilience Analysis for Distribution Systems (ERAD) and Capacity Expansion Decision Support for Distribution Networks (CADET) tools. Using FEMA floodplains, Iowa Flood Center depth grids, and utility infrastructure data, the analysis quantifies asset exposure, simulates outage risks, and evaluates resilience strategies such as pole hardening, undergrounding, and substation protection. Results indicate that while feeder-level upgrades provide incremental benefits, the most significant reductions in outage risk are achieved through targeted substation interventions. The report highlights key data gaps, such as limited elevation data and fragility functions, and underscores the need for probability-weighted investment frameworks to address both frequent and catastrophic flood events. These insights aim to support utilities, state agencies, and federal partners in prioritizing resilience investments that safeguard Iowa's electric grid against future flooding.

24 POWER TRANSMISSION AND DISTRIBUTION

Microgrid Hardening Design Toolkit User Guide: Software v0.29

Microgrid Hardening Design Toolkit helps microgrid stakeholders assess community-specific natural hazard risks to microgrid components and provides mitigation strategies to reduce those risks. Using census tract location inputs and the Federal Emergency Management Agency (FEMA) Risk Index dataset, the tool provides a ranked list of the highest risk hazards for a selected community and hazard-specific mitigation options for microgrid components. It also provides risk twin communities with similar hazard risk profiles and includes a radar-chart to visually compare risk profiles across communities. The toolkit is expected to help users quickly understand community-specific hazard risks and make decisions for microgrid hardening.

24 POWER TRANSMISSION AND DISTRIBUTION