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Strategic Relocation and Environmental Perception: Community Perspectives from Port Arthur, Texas

During the second part of the workshop, on June 9, 2022, residents and local leaders shared their perceptions of environmental risks and hazards and discussed the concept of managed retreat. The committee selected participants to learn about and discuss forms of strategic relocation under consideration, including issues relating to local decision-making processes and public engagement, and discuss the implications of equity on displacement and relocation.

As summarized at the end of the workshop by committee member Craig Colten, much of the discussion during the second part of the workshop centered on experiences arising from hurricanes, flooding, and proximity to petroleum refineries. Most of the participants were from the west side neighborhood, which is low lying and adjacent to two major petrochemical processing facilities. Residents of the west side have faced problems from flooding, hurricane-induced rainfall, and heavy rains that occur year round. They also face exposure to emissions from the nearby industrial facilities. Currently, there is no local buyout program available.

Thurman Bartie, mayor of Port Arthur, gave a brief welcome speech about community and trust in leadership. He mentioned a mixed-use development master plan for Port Arthur downtown to revitalize and attract single-family and multi-family housing, where individuals can live, work, and shop in the same area.¹

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¹ For more information about Imagine Port Arthur, the Downtown Revitalization Plan, see https://www.portarthurtx.gov/485/Imagine-Port-Arthur

THE PORT ARTHUR, TEXAS COMMUNITY

Hilton Kelley, the founder and director of Community In-Power and Development Association Inc. (CIDA), thanked everyone for sharing their stories and talking about their experiences during Hurricane Harvey. Regarding managed retreat, he said that there might be some reasons for Port Arthur to participate, such as a lack of adequate housing. Kelley encouraged participants to consider

• How urban planning and the built environment can help or hinder relocation decisions and processes;
• How climate hazards like flooding intersect with environmental justice issues;
• What the thresholds are for determining whether to stay, rebuild, or relocate;
• What relocation options exist;
• How to learn about relocation options;
• Where to go in a relocation scenario;
• The time needed to make these decisions; and
• The support required for paperwork.

Kelley spoke about his love for Port Arthur and growing up in Carver Terrace, the first public housing project built in Port Arthur on the west side. The complexes were intended to help people to get on their feet but have turned into multi-generational housing. Across West Port Arthur, shotgun houses were quickly built, attracting African American people from Louisiana, Mississippi, and Florida to come to Port Arthur. Many moved to muddy, marshy areas on the outskirts of town in West Port Arthur that were hard to farm because housing elsewhere was unaffordable. Kelley grew up next to the Motiva oil refinery, formerly the Texico refinery, and the Valero oil refinery, formerly Gulf Oil.² As the oil and gas industries grew in nearby Beaumont, people started to move closer to the water (i.e., towards Port Arthur) for shipping lanes. Two decades after leaving Port Arthur, he returned and started organizing and bringing people to the table to address environmental justice, social discrimination, and economic issues. He created CIDA and began focusing on environmental justice issues and reducing industrial air emissions, which have been linked to cancer and liver and kidney disease among Port Arthur residents.

As Port Arthur started getting hit by storms causing annual flooding, Kelley’s work turned from environmental justice to fair housing and fair

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² Other facilities in the area the Huntsman Petrochemical plant, Chevron Phillips plant, Great Lakes Carbon Corporation’s petroleum facility, Total Petrochemicals USA facility, Veolia incinerator facility, and BASF Fina Petrochemicals plant.

treatment from the Federal Emergency Management Agency (FEMA). After Hurricanes Katrina and Rita, many people who left New Orleans landed in Houston. This was because, for many, “there was nothing to go back to.” Most recently, Hurricane Laura narrowly missed Port Arthur but hit the Lake Charles area. Kelley explained how he organized a group to help cut down trees and bring generators for people suffering from heat. “It’s not about how many people you help,” he stated, “it’s about doing what you can.”

Kelly pointed out that managed retreat is a tricky topic. Many people living in Port Arthur love their community, way of life, and culture. Kelley compared this to people who wanted to return to New Orleans after Katrina and whose “hearts were still in New Orleans, remembering when they had close-knit families and communities.” He stated there were many ways managed retreat could work, and that it could take many forms, for example, finding a way where those who want to leave can go together, but those who wish to stay can be assisted, at the federal level, to build more resiliently.

He recalled the time when a group of residents from the Montrose area of Port Arthur, which had received six to seven feet of water, came to his office after Hurricane Harvey. Whenever there was a situation with chronic unemployment or loss of houses or habitat, they require “guidance and leadership.” Kelley explained how sharing people’s stories helped draw attention to the matter. He told the workshop participants “if you don’t tell your story, no one will ever know you are hurting, or [that] your community is in need.”

COMMUNITY PERSPECTIVE: UNMET NEEDS IN PORT ARTHUR

Michelle Smith is the marketing director for CIDA and has been a resident of Port Arthur since 2012 when she moved back to live with her grandmother. Many African Americans on the west side have lived there for generations after initially going there looking for a better opportunity. Smith was not used to seeing pollution and felt alarmed when passing by refineries. She did not understand why that was allowed to happen, which is why she started working with CIDA to “help shine a spotlight on” the number of unmet needs in Port Arthur. In 2005, she was in Port Arthur when Hurricane Rita hit. After growing up in the Netherlands, it was the first time Smith had to think of leaving her home for safety, she remarked that “it was terrifying.” Coming back in 2012, she was still a little nervous, but happy to be back. Her home did not flood during Hurricane Harvey but everything around it was flooded. “It was heartbreaking and difficult to watch people losing everything, and they still wanted to stay,” she said. By living close to the refineries, her house value has been artificially depreciated because of industrial pollution. She estimated it would be at least four

times as much if it were located elsewhere. She does not want to live by the refineries but feels trapped because she cannot afford to relocate. Selling her house is not an option because no one would want to buy it, and with the current market value of her home, she does not know where she would go. She described the situation as a continuous spiral that many community members feel from which they will never recover.

As soon as hurricane season starts, she wonders: “am I going to have to leave again? Will my house be standing when I come back? Will I have to make repairs just to live there safely? What am I supposed to do? What do we do? What are we supposed to do?” The critical part, in her opinion, is that the government needs to look at the situation and not attach a financial value merely to the homes, because more is required to move safely. For example, after Hurricane Harvey, many homes that were not in the floodplain now are. These homes now require flood insurance, which many cannot afford. Her home has not flooded, but she lives a mile away from two industries that produce over a million barrels of oil daily, which concerns her. She said she is terrified whenever it starts raining and would like to move, but simultaneously, she does not want to move as she loves her community and does not want to leave the place she calls home.

COMMUNITY PERSPECTIVE: REBUILDING

Octavia Sanders, from the Montrose neighborhood on the west side of Port Arthur, shared her story about how Hurricane Harvey took her home away. She has lived in Montrose since she was two years old and has suffered multiple hurricanes. Hurricane Harvey was the worst; as the water rose she left for her sister’s house, which was on stilts. The water continued to rise overnight, trapping 13 of them in the house. A helicopter had to rescue them three at a time. She recalled holding her dog in a grocery bag and telling her sister “oh look, the water went to someone’s roof,” not realizing it was the house she had bought with her late husband. The water ruined everything she owned, including her two cars, and displaced her from her home for months. She did not have flood insurance and she wishes she could have had a conversation with the person who talked her out of flood insurance. Finally, they gave her a FEMA trailer to stay in, and her home was eventually rebuilt on six-foot stilts. She is glad she has insurance now, even though she struggles to pay for it because she lives in a flood-prone area.

She heard about and considered a buyout because she does not want to go through another storm. “I hate to live like that—to be scared.” When everybody else is dry, her community in Montrose often has water. Many people she knows do not want to go through this again. Some of the houses in Sanders’ neighborhood are worth very little—hers is only worth

about $5,000—so she does not think many people can afford to relocate. She often sits on her porch until late at night because she feels safe in her community, which she does not believe she would be able to do elsewhere. Additionally, she pointed out that many people raise animals and garden, which they may not be allowed to do in other areas. “Buyout is like, y’all just get out with no solution—give us a solution!” Drainage is one possible solution, she noted. She said if there were another plan, some people would move, especially the younger people, but many older people are comfortable and do not want to leave. “It’s not that we aren’t tired of it, but what can we do? What can the government do?”

Smith asked Sanders what her threshold is for determining whether to stay or go and what would have to happen for her to move to a new place. Sanders replied that if the government made it possible for her to move today, she would not want to leave since she did not know where to go. However, if she had a place like Montrose, and the whole community went, then maybe she would go but would consider lifestyle, her age, and community culture. Edward LeDay and Hilton Kelley further explained that around 80 percent of Port Arthur floods, so there is nowhere to go within Port Arthur. In some places, the ditches cannot handle the water, so better pumps might help; LeDay noted that pumps are not upgraded to combat the flooding. Sanders also commented that if there were ever an industrial explosion nearby, she would “probably move” at that point.

COMMUNITY PERSPECTIVE: INDUSTRY IMPACTS

Pam Graham has lived on the west side of Port Arthur her entire life. She has witnessed how exposure to industrial chemicals has affected residents. After retiring in 2017, she spent more time at home and became more concerned about air pollution. She contacted Hilton Kelley to speak at a city council meeting about a fire at the local German Pellets plant that created smoke for months in Port Arthur. Graham said no one from German Pellets attended the meeting, “which showed me they didn’t think we were important.” Residents had no idea how long it was going to burn for or what health effects it could have, nor was direction provided for where residents could go or what they could do.

Graham does not want to move because she feels it will need to be cleaned up, sooner or later. Currently, the market value of homes is low and many people are “insurance poor” due to numerous types of insurance that are needed—flood, homeowner, windstorm and hail, life, as well as car. That is difficult for her on a fixed income. She has renovated her home a couple of times only to have to do it again after storms and, every time, she stated it had been a fight with the insurance companies. She does not know where she would go if she had to relocate. Graham has two lots and

stated that she would not get the value needed to move somewhere else with the same level of privacy and space. Instead, she prefers Port Arthur and the west side to be a clean environment for the people who would like to stay. However, she added that her kids would not remain. Graham noted that some people on the west side are very educated and reside there willingly. Many residents have retired and returned because living costs are cheaper, but “they pay the price.” When they put silos by the port she was never provided notice or an opportunity to give feedback, and now industrial entities are surrounding her community. She wants to ensure that these industries are safely operated without harmful emissions.

COMMUNITY PERSPECTIVE: A “GUMBO” OF PROBLEMS

Landry Patin was born and raised in Port Arthur. He described a “gumbo” of problems—a mixture of things that play into staying and leaving. One of his earliest memories was of a “road trip” that was an evacuation when the hurricane hit while his family was stuck in traffic. He said everyone in his community is worried all year, especially whenever it is rainy or windy since they have seen it flood outside of hurricane season. He feels the problems in Port Arthur should be addressed instead of placing them on the back burner.

He can trace his entire family history back to Port Arthur. He had never considered leaving until his father died due to a massive heart attack after being sick. He knows many who have experienced cancer, diabetes, and other health conditions. Patin does not want to leave because this is his home and community but, if he did, it would be because he knew it was detrimental to his life, and he worries about his chances of having cancer due to the pollution in the area.

Patin stated that everyone he knows is familiar with someone who has lost everything. He was not sure how to sum up “the feeling of loss that you feel” after a storm. No one who has had this happen and comes back feels comfortable again, especially when the “path of the problems that cause this hasn’t been addressed.” His community has given suggestions but nothing has changed. Many residents have shared stories with him about living in homes with mold because “they don’t have a choice.” The floods are horrible but the “in-between times are also horrible” as he awaits the next flood. He also questions how he would be able to know that another location would be safe.

COMMUNITY PERSPECTIVE: PROBLEMS TO ADDRESS

Tiffany Anderson has been back in Port Arthur for four years. She was not affected by recent hurricanes but her family members are still rebuild-

ing their homes. For example, she has an elderly neighbor living in only the front room of her four-bedroom house. She knows people whose walls and floors were torn down to the foundations and they cannot afford to finish rebuilding them. She felt like many would not be in this situation had they been given proper notice. She believes everybody needs more alerts (e.g., “it’s coming, here’s what to do,” “here’s your starter pack, this is where you go,” and transportation options). Too many people have died simply because they were unable to swim or did not have access to a car. Many problems need to be addressed which could save lives and put people in better situations. For example, drainage systems are a significant problem that needs to be fixed, echoing similar sentiments that other speakers shared.

Another example to help prepare the community that Anderson provided was educating residents on homeowners insurance; she said many people do not know what type of insurance works best for their situation. Therefore when a flood does happen, people do not know what to do afterward. She finished by mentioning that help is also needed for single elderly residents who do not have anyone to check on them before, during, and after an extreme weather event.

Q&A WITH COMMITTEE MEMBERS AND AUDIENCE

Managed Retreat Considerations

Michelle Smith asked participants if they felt there has been enough communication regarding relocation options (e.g., where you would go, how you would get there, and what a relocation package could offer). Hilton Kelley replied that he has heard of managed retreat, but in his eyes, it means retreating from a battle he has been fighting—one he has been fighting for at least 15 years—to try to maintain the way of life for his community. Now that storms are worsening, withdrawing would mean starting again without a community and the community’s history. Additionally, age plays a significant role in the ability and desire to go somewhere else. His family is all in Port Arthur; he questioned where they would go and how they would leave together. He did suggest that many may go somewhere else and be comfortable, however, he wants to find a way to deal with the current issues sustainably with the needed support to stay in place.

Marie Kelley, Hilton Kelley’s wife, shared their journey after Hurricane Harvey. They stayed in hotels and a trailer for two years while their home was uninhabitable due to mold. She said it was devastating to see her possessions floating in the water. After a certain amount of time, they had to pay rent to stay in the trailer, so once they had one room done along with the kitchen and a bathroom, they moved back into their home. Many

places that have never had extreme weather events are now experiencing them, and she stated that she would not go elsewhere if faced with similar adversities. If another hurricane tears their rebuilt home, she does not know what they will do, especially since they still face financial hardships that they will never recover from. Hilton Kelley agreed, adding that they made it through more robust and are now better prepared with two levels so they can be upstairs if needed. Hilton Kelley believes there is a need for carbon footprint reduction, which is “why I refuse to retreat.” Hilton Kelley noted that he has seen people unite the most during disasters. Yet, it would be good to build relationships outside disaster situations, regardless of race, ethnicity, or background.

Janice Barnes, the committee co-chair, asked if there is an active citywide approach to managed retreat or if this is still emergent on a case-by-case basis. Hilton Kelley replied that there had been conversations about several streets (e.g., Montrose), but it has never been a citywide discussion. However, he stated that a conversation needs to be had across Port Arthur.

Other Considerations

Billy Kelley recalled when his brother, Hilton Kelley, started talking with people dealing with health issues, such as children on breathing machines and residents dying from cancer. Billy Kelley said he did not realize how serious it was and how it affected children until then. He said, “if someone shoots you, you didn’t just die; you were murdered.” In his mind, it is the same thing with harmful industrial emissions. Before Hurricane Rita hit, this was a big concern for him since he lives three blocks from the refinery. When Hurricane Rita hit, he assumed it would be easy to handle by just getting in a car and leaving, but it was bumper-to-bumper cars on the road. He decided not to leave during Hurricane Harvey, which was a terrifying experience. Preparation for every storm is different, but to him, the “main thing is how are you going and where are you going.” He gave an example of now traveling with a chainsaw to cut through debris that could be in the roadway because of one time getting blocked by a fallen tree.

Next, Craig Colten asked if there had been any compound impacts from flooding (e.g., refinery spills and flooding). Hilton Kelley replied that he had seen aerial shots of the oil sheen in the floodwaters in Port Arthur, and some oil had been washed into the community from the refineries. Graham was unaware of a contingency plan to address possible chemical runoff from nearby industries. Hilton Kelley also noted that the inherent dangers in the water after a storm are often forgotten, such as alligators, poisonous snakes, and downed power lines.

Communication and Education Options

Colten inquired about communication and education options for recovery information. Sanders and Smith suggested that local government officials sharing information on the local news (both in the newspaper and on television) would be the best channel to reach people about repair programs for their homes, managed retreat options, and relocation eligibility information. However, Hilton Kelley highlighted that it would have to be outside Port Arthur due to flooding in most of the area. Several participants noted that after floodwaters recede, industries come back online and release additional emissions in West Port Arthur. Graham would like monitors installed for residents to monitor emissions. Smith noted that the startup, shutdown, and malfunction rule³ is important, since after industries start back up after a hurricane, they burn off large amounts of carcinogens, which “adds on to what they are already dealing with” after a flood. Hilton Kelley noted that startup and shutdown levels are not currently counted, but under new rules, companies may be required to find ways to reduce startup and shutdown levels, which are “often used by companies to burn off extra stuff, too.”

Leaving

E. Barrett Ristroph, a committee member, asked participants if they would be willing to leave if there were a place with similar community amenities and features paid for and the community came with. Some participants indicated they would go, but there was a general agreement that they would only leave if others left with them, while others expressed they would not consider leaving. Hilton Kelley pointed out that evacuation routes can be dangerous. He shared seeing many people stuck on the side of the road with all their belongings because they cannot go on due to emptied gas stations and grocery stores. Issues like domestic violence, mental health issues, substance abuse, high crime levels, and financial concerns have also been seen by Kelley. He voiced support for a measure such as pre-prepared temporary housing for people impacted by a natural disaster until their homes are rebuilt.

KEY INSIGHTS FROM THE WORKSHOP

Colten observed that the discussions converged into several main themes, which can be summarized, in no particular order, as follows:

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³ For details about the 2015 Environmental Protection Agency rule see https://www.epa.gov/air-quality-implementation-plans/emissions-during-periods-startup-shutdown-malfunction

• Leadership and transparency: Participants expect responsive and effective leadership from civic authorities, such as providing adequate warning of impending flooding conditions and timely notification for evacuation. They expect transparency from the industry to communicate and share information such as warnings about chemical releases and spills and news of expansion plans that might contribute to hazardous material releases and storm runoff from the plant properties.
• Information on options: Participants requested more timely information on safe evacuation routes and welcoming evacuation destinations during hurricanes. If there is to be relocation, they want information about possible destinations and what makes them better than their current residences.
• Follow-through: Participants expect the local, state, and federal officials to follow through on commitments to provide safety during disasters and efficient recovery after a disaster. This desire includes sustaining programs until they are fully completed and funding beyond one administration.
• Risks on the rise: Participants noted that hurricane, precipitation, and flood risks are rising due to climate change and sea-level rise, elevating their risk of flooding. They also commented that chemical emission risks were on the rise. They want to be informed about the possible threats and have information delivered promptly.
• Protracted recovery process: Participants voiced frustration with the time required to roll out recovery plans and deliver government relief and private sector insurance funds. The lag between property damage and receipt of funds created hardships for many participants for extended periods.
• Market value for property: In terms of buyouts, the participants were critical of the valuation of properties that only considered the dollar value and not the host of social and cultural values of residing in a friendly community and noted damaged parcels in the shadow of industries will not yield sufficient equity to buy comparable housing elsewhere.
• Attachment to place: Participants who would rather stay than leave repeatedly expressed strong ties to place and community. The many unknowns of relocating to a new place tended to outweigh the rising risk of flooding, particularly for older residents. They placed more emphasis on flood mitigation procedures—such as drainage and pumps—as a solution to their situation rather than managed retreat.
• Inequities in the process: The participants were African Americans and pointed out numerous inequities regarding public services such

• as adequate drainage and timely disaster relief. They voiced concern that relocation plans might merely remove people of color from gentrification and allow new development at their expense, pricing them out of their homes.

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