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Hurricane Harvey
Texas is home to 1.46 million veterans, and many felt the direct impact of the storm. Some veterans faced
many of the same challenges as the civilian population, such as temporary housing displacement. Other
veterans were more vulnerable to the storm’s impact, as they were already experiencing homelessness or
struggling with mental illness.
Groups like Combined Arms, Team Rubicon, the Wounded Warrior Project and others came together to serve
veterans in need of assistance after Harvey. They also brought together volunteers, showcasing the resiliency
of the veteran community along the Gulf Coast.
Two years later, despite countless reports and analyses of the storm’s impact on the region, we still needed
to answer some basic questions about the veteran population: how were they affected by Hurricane Harvey,
and how are they recovering? This report takes a data-driven approach to understanding the impact of
Hurricane Harvey on the Gulf Coast veteran population, with a specific focus on post-9/11 veterans.
This report examines four key questions about veterans after Hurricane Harvey:
3. Who provided disaster services to veterans, and how well were they served?
4. How has the recovery process been for veterans and what needs remain?
At a high level, we estimate that at least 98,000 veterans along the Gulf Coast were affected by Hurricane
Harvey, including 18,000 post-9/11 veterans who applied for disaster assistance. Other key findings from
this report include:
Among veterans surveyed in the Combined Arms network, nearly 60% sustained damage to their homes
and belongings. Two years later, 33% reported still needing home repair services or support.
In Greater Houston, veterans requested similar kinds of social services as the civilian population through
United Way’s 2-1-1 call center. But an outsized share of veterans, especially older veterans, made
requests for disaster case management.
88% of veterans surveyed by Combined Arms immediately after Harvey reported they did not have flood
insurance. Two years later, 66% of veterans surveyed still lacked flood insurance.
Nearly 3-in-4 post-9/11 veterans (73%) said they volunteered after Hurricane Harvey, and roughly half
(49%) volunteered with at least one organization for the first time.
We close the report with lessons learned and policy recommendations on how to better serve veterans after
future hurricane and flood events.
The widest angle to view Hurricane Harvey’s impact on veterans is data from
the Federal Emergency Management Agency (FEMA) on the number of
registrations for individual assistance by age and zip code. Unlike most
other data sources that focus exclusively on the Greater Houston area, the
FEMA data covers the entire Gulf Coast region. However, these data do not
contain veteran status. To estimate the number of veterans who registered
with FEMA, we used data on the number of adults from the American
Community Survey (2013-2017) to calculate the share of adults who applied for FEMA individual assistance in
each zip code. We then applied that percentage to the number of veterans (and post-9/11 veterans) from the
American Community Survey to estimate the number of veterans who applied for FEMA assistance in each
zip code. This method assumes veterans in a given zip code were equally as likely as other residents to be
impacted by Harvey and apply for FEMA assistance.
United Way of Greater Houston generously provided 2-1-1 call data for
this project. These data represent over 100,000 anonymized calls from the
public for information to 2-1-1 during and after Hurricane Harvey (August
25, 2017 to November 30, 2017). The data include each caller’s veteran
status (veteran, civilian, currently serving in the military), age, gender, and
zip code of residence, as well as information on the needs and services they
are seeking information about. Although this is a rich source of data about
veterans’ needs after Harvey, 2-1-1 staff were unable to verify the veteran status of approximately one-third
of calls, and the status does not indicate the era of service. As a proxy for post-9/11 veterans, we split 2-1-
1 callers who were verified veterans into two groups based on age: younger veterans (< age 50) and older
veterans (age 50+).
Combined Arms (CAX) was our third source of data for the project.
Combined Arms provided three types of data:
Data on CAX clients’ requests and receipt of services was recorded in CAX’s coordinated care management
platform.
In the immediate aftermath of the storm, Combined Arms surveyed 195 existing and incoming clients about
how Hurricane Harvey affected their lives. The survey was available as a voluntary assessment module in the
CAX coordinated care system for interested veterans. It asked questions about the status of the veteran’s
residence, disaster-related needs (e.g., food and financial assistance), as well as whether they had accessed
FEMA aid or had flood insurance.
In July 2019, almost two years after Hurricane Harvey, Combined Arms conducted another survey to gauge
the recovery process for veterans and ask additional questions related to resilience and volunteerism.
Putting these numbers in context, there were approximately 1.5 million valid registrations for individual
assistance aid connected to Hurricane Harvey. An estimated 6.5% of those requests were from veterans,
which is in line with the veteran share of total population in the region estimated by the Census Bureau in
2017 (7.4%).
The majority of veterans who applied for FEMA Individual Assistance were living in the Greater Houston area
(the 13 county area surrounding Harris County). In Harris County alone, the most populous county in the
Greater Houston region, some 36,000 veterans and 7,500 post-9/11 veterans applied for FEMA Individual
Assistance.
In Greater Houston, veterans were at greater risk of being affected by Hurricane Harvey than the general
population. An estimated 31% of all veterans and 29% of post-9/11 veterans applied for FEMA
Individual Assistance compared with 22% of Greater Houston residents. This difference is due entirely to
the zip codes where veterans lived. Compared with the civilian population, veterans in Greater Houston were
more likely to live in zip codes that experienced outsized damage from the storm.
These figures are best estimates, as there are an unknown number of people and families along the Gulf
Coast that were affected by the storm but did not apply for FEMA assistance. For example, many veterans
who were homeless before the storm may not be represented by the FEMA data. Nevertheless, we use FEMA
Individual Assistance data as a conservative, lower-bound estimate of how many veterans and post-9/11
veterans were likely affected by Hurricane Harvey.
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In the first few weeks after the storm, veterans were calling 2-1-1 for the same things as the general
population: disaster food stamps, assistance with FEMA online registration, disaster unemployment
assistance, mass care shelters, and information on relief and recovery organizations. Younger veterans, in
particular, called in the same disaster-related needs at similar rates as the civilian population.
During the recovery phase of Harvey, many services required a referral from a case manager, often
specifically through 2-1-1. It is unsurprising, then, that the top need for veterans after Harvey was disaster-
related case management. A case manager’s role is navigating the remainder of services and resources
available during this time period.
Calls to 2-1-1 for case management referrals came a full month after the storm in early October, as the
recovery phase ramped up. They primarily came from older veterans (over age 50). 254 older veterans and
101 younger veterans requested disaster-related case management from 2-1-1.
695
Post-disaster spike driven by calls for
200 case management and food stamps,
particularly among older veterans.
Veterans over 50
100
Veterans Under 50
0
Sep 2017 Oct 2017 Nov 2017
Number of calls each week
50 50
25
50 49
42
25 23
0
Sep Oct Nov Sep Oct Nov Sep Oct Nov
Post Disaster Points of Distribution Disaster Recovery Centers Disaster Loans
100
5
50 54 36
75
38 27 25
50
25 23
12 23
0
Sep Oct Nov Sep Oct Nov Sep Oct Nov
Note: Data provided by United Way of Greater Houston. Some calls include multiple needs and requests for services. Data on veterans’
service era was not collected. During this time period, veteran status was unknown for 34% of callers.
= 5 veterans
128 additional veterans,
330 Post-9/11 veterans service era unknown
40%
27% 25%
23%
20%
20% 17% 16% 15% 14%
10% 9% 10%
7%
0%
Residence is Need food Need Need donated Need to apply Connection to Need help Need short−term,
damaged* for family long−term clothing for disaster VA healthcare cleaning out emergency
housing unemployment needed house shelter
Have you applied for FEMA aid yet? Do you have flood insurance?
No need: 2%
Yes
No An overwhelming majority of 12%
17% veterans surveyed had already
applied for FEMA aid.
Yes No
81% At the same time, equal 88%
numbers reported lacking
flood insurance.
Note: Harvey needs assessment was voluntarily taken by 195 Combined Arms clients. An additional 215 clients answered the question
about damage to their residence. Not all veterans reported era of service.
10 Serving Veterans After Hurricane Harvey
Combined Arms post-Harvey survey
In the weeks after Hurricane Harvey, Combined Arms surveyed nearly 200 existing and incoming clients to
better understand their social service needs. Housing was the primary concern. Nearly 6-in-10 respondents
reported that their residence sustained minor or major damage during Harvey, including half of post-9/11
veterans. Twenty-seven percent of respondents were in need of long-term housing and around 10% needed
short-term, emergency shelter (at the time of the survey).
Food and clothing were other top concerns. Fifty-seven percent of veteran respondents said they needed
food for their family after the storm. Around 1-in-4 respondents said they needed donated clothing. Smaller
shares of respondents said they need help applying for disaster unemployment (17%), connecting to VA
healthcare (15%), and cleaning out their homes (14%).
The vast majority of veterans who responded to Combined Arms post-Harvey survey – approximately 8-in-10
– reported that they had already applied to FEMA for disaster-related aid.
But one area of concern is that nearly all of the respondents (88%) reported that they did not have flood
insurance.
“Due to lack of Flood Insurance, the repairs to my house, property loss, and vehicle
damage significantly impacted my savings. Prior to the flood, my home and car were
completely paid for (debt free).” - Veteran respondent to CAX 2019 survey
In total, Combined Arms served at least 686 veterans who were affected by Hurricane Harvey. These veterans
were identified either through the post-Harvey survey or by the types of services they requested (e.g.,
disaster-related financial assistance). Many more CAX clients may have been affected by the storm, but did
not seek services directly.
Almost half (330) of Harvey victims served by CAX were post-9/11 veterans. An additional 228 were veterans
who ended their service before 9/11, and the remaining 128 veterans did not report the era in which they
served1. On the whole, Combined Arms clients affected by Harvey were much younger than veterans who
called 2-1-1 for help.
In fact, 37% of Harvey-affected clients, and 59% of post-9/11 clients, were under the age of 40. The large
majority of Harvey-affected clients were men, but a substantial minority – 26% – were women. Most of these
veterans were living with children (57%). (For a full demographic breakdown, see Appendix.)
Harvey-affected veterans who went to Combined Arms also had relatively high levels of education. Most had
at least some college experience, with 23% having earned an Associate’s degree or technical certification and
32% having earned at least a Bachelor’s degree.
Unfortunately, data on race-ethnicity of Combined Arms clients was largely unknown due to missing data on
60% of Harvey-affected clients. These fields were optional for clients and many chose not to fill them out.
But the range of services requested by veterans went well beyond the traditional needs after a natural
disaster. Many veterans were also looking for career assistance, financial help, volunteer engagement,
homelessness assistance, and veteran benefits assistance.
There were important age differences in types of service requests. Post-9/11 veterans affected by Harvey
were actually much more likely to request Career Services than Harvey Relief Services – 198 requests vs. 109
requests.2 That means many post-9/11 veterans who reported being affected by Harvey did not seek Harvey
Relief Services through Combined Arms.
This could be because more post-9/11 veterans had already received disaster assistance from another
organization, or because the impact of the storm on their lives and livelihood was not as severe. Either way,
the high degree of need for career services among this population in the wake of a disaster underscores the
longer-term issues facing veterans around job training and career readiness.
1 Many of the veterans that did not identify their time of service were new, one-time clients who did not complete profiles in the CAX system of
record.
2 Veterans can make multiple service requests through the CAX system.
100
50 Post-9/11
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Combined Arms external referrals, which includes referrals made to organizations outside the CAX provider
network, fielded the most service requests, and addressed a range of needs through additional service
providers like Houston Food Bank.
Disabled American Veterans was the single largest provider of services during this period, largely because of
a disaster financial assistance drive they held at Combined Arms headquarters during the second week of
September 2017. At that event, 144 veterans received assistance.
Other top providers include stalwarts of the Combined Arms provider network, such as Lone Star Veterans
Association (105 service requests), Wounded Warrior Project (96), Career Gear Houston (88), The Mission
Continues (61), and NextOp (60).
Most veterans were served quickly by Combined Arms’ partner providers. Over half of all service requests
during this period were addressed and closed within two weeks. A large share of cases – over 26% – were
closed on the same day (most of these cases were through Disabled American Veterans’ financial assistance
drive). Other social service requests took longer to tackle, such as those for career and education assistance.
Overall, the vast majority of service requests by Harvey victims in the Combined Arms network (82%) were
addressed within three months.
Combined Arms wanted to get a better sense of how veterans in the Greater Houston area are doing two
years after Harvey – how the recovery process is going, how many are still in need of services, and what
services and assistance is still needed. In July 2019, Combined Arms reached out to 1,924 veterans in their
system who had either identified themselves as Harvey victims, accessed Harvey Relief Services, or had
entered as a new client in three months following the storm. The survey was also posted on social media for
non-CAX clients.
A total of 107 veterans completed the 15-question survey. The survey asked about veterans’ experiences
during Harvey, their current recovery status in terms of housing, belongings, income, and health,
volunteerism after Harvey, and resiliency. The full survey can be found in the Appendix.
Recovery
The majority of respondents (66%) agreed that “life was back to normal” two years after Harvey. But
approximately one third of respondents did not agree. 16% of respondents disagreed, and 18% strongly
disagreed that “life was back to normal.”
Home repair was the top area of continued need and support. Of all veterans surveyed, 59% reported that
they experienced some amount of damage to their home or apartment during Harvey. Two years later,
44% of those veterans who experienced home damage still had unfinished repair work that needed to be
completed. One-in-five (21%) were living in homes that still needed major repair work, while an additional 4%
were living in another temporary residence while awaiting major repair work.
Meanwhile, 36% of veterans surveyed whose homes were damaged during Harvey had permanently moved
to a new residence.
Created a hurricane
semper paratus preparedness kit/plan 45%
Have you done any of the following since Became civically engaged
23%
Hurricane Harvey? on flooding issues
Moved to an area with
22%
lower flooding risk
I was trapped in my rental home in Bayou Vista for 3 days by flood waters. As soon as I was
able to leave I went to Rockport for 8 days with Team Rubicon to help with disaster recovery.
It was the number one incident that I have been through (over getting blown up and
suffer a TBI in the military) I have ever experienced and still haven't recovered from.
I'm a disabled veteran and tattoo artist. Tattooing is the only thing I can do for work due
to my disability. Work has dropped in half if that. It's never gotten back to normal.
My disability retirement from the Navy has gotten worse. Had to move what I could
out of my flood house into storage. Then about 8 months later move into new home.
My family have anxiety now every time it rains heavily, we are still struggling
to get on our feet, we lost and are trying to get things back together. My
daughter just left to the service.
Combined Arms helped me when I needed other most thank you for helping
myself in a time of need. I will always be grateful to you all.
Due to lack of Flood Insurance, the repairs to my house, property loss, and vehicle damage significantly
impacted my savings. Prior to the flood, my home and car were completely paid for (debt free).
Nearly 3 years out since the storm and my wife passed away and
my family has been torn to pieces and lost everything. Amd we still
live in a seriously 23 grand in damage home.
The long term help is not present. I have a hard time getting the help I need.
Money does not solve everything, Need help of others time.
I had to medically withdraw from school. I have a 2000 hold on my account. If I can get help to
satisfy this, then i will be in a better situation. I am in dire need to get back into a vehicle.
After coming from New Orleans enduring Hurricane Katrina then having
to live through Harvey just has put a lot of unwanted stress in my life.
When you lose everything and can't get to the places you need to,... telling me where places are is fine,
if I can't get there... is frustrating. Or maybe turning me away when I get there hurts worst.
There was a lot of confusion when it and to rights of renters. We did not receive
all of our deposit back from our landlord after we became homeless.
Transportation was another key area of need. Approximately 35% of respondents reported that they or a
member of their household had a vehicle damaged or lost during Harvey. Of those, 41% had their vehicle
replaced and 30% had it repaired. But 29% of veteran respondents whose car was damaged during the storm
had not replaced it by 2019 and were still in need of one.
A surprisingly large share of veterans – some 40% – reported that they lost income as a result of Hurricane
Harvey. Two years later, nearly two-thirds (63%) had seen their income return to what it was before the storm.
Far fewer veterans reported any sickness (15%), injuries (1%), or hospitalizations (1%) as a result of Hurricane
Harvey. Of those who reported any health issues, two-thirds (67%) said their health was back to normal two
years later. In addition, more than 1-in-8 respondents (14%) reported that they were still in need of mental
health services.
As with many other vulnerable populations in the Houston area, it’s clear that the recovery from Hurricane
Harvey has been uneven for veterans. But even among veterans, there is important variation by age: Post-
9/11 veterans in the survey were much more likely to say life was back to normal than older veterans who
served in previous eras. Seventy-seven percent of post-9/11 veterans reported life was back to normal after
Harvey compared with 54% of pre-9/11 veterans.
Resilience
The survey also revealed how many veterans stepped up to help their community after Hurricane Harvey. The
majority (61%) of veterans surveyed reported that they volunteered to help family members, friends, or other
people through clubs, churches, and other organizations. Thirty-eight percent volunteered with at least one
organization for the first time.
Post-9/11 veterans, likely due in part to their age, were even more likely to have volunteered. Nearly 3-in-4
post-9/11 veterans (73%) said they volunteered after Hurricane Harvey, and roughly half (49%)
volunteered with at least one organization for the first time.
While Hurricane Harvey brought the community together, the storm also exposed the ways in which
Houston’s veterans were not and are still not prepared for natural disasters. For instance, even two years
after the storm, more than half of veterans surveyed (57%) do not have flood insurance. Only 20% of
respondents got flood insurance after not having it during Harvey. This pattern was similar for post- and pre-
9/11 veterans.
But many veterans have taken other actions in response to Hurricane Harvey. Some 45% of respondents
reported that they had created a hurricane preparedness kit and/or hurricane plan since Hurricane Harvey.
This was especially true of post-9/11 veterans (62%), who also may have been less likely to have made such
preparations before Harvey.
More than 1-in-5 (22%) of veterans surveyed said they had moved to an area that is not on a flood plain or
has a lower risk of flooding since Harvey. Again, a larger share of post-9/11 veterans (31%) reported having
done this.
A similar share of veterans (23%) said that since Harvey they had become civically engaged on flooding
issues, including attending a town hall, talking to a government official or representative, or voting on a bond
proposal. Post- and pre-9/11 veterans reported similar rates of civic engagement.
1. Collect data on veteran status. One key challenge in writing this report
was locating data sources that asked about veteran status of people in
need, those accessing services, and those answering surveys after Hurricane
Harvey. In order to understand the wider impact on veterans outside of
the Greater Houston area, we had to estimate veteran status from FEMA’s
individual assistance data, which did not distinguish between veterans and
civilians.3 There are several post-Harvey surveys administered by Houston-area
researchers as well as social service nonprofits that did not ask about veteran
status. This lack of data makes it more difficult for researchers to understand
the impact of the disaster on veterans, and how governments and nonprofits
should respond to help. Additionally, if social service referral providers ask
about veteran status, they can provide veteran-specific resources and aid.
2. Sign veterans up for flood insurance. A key finding from this study is
that very few veterans had flood insurance before Harvey4. Flood insurance
mitigates the financial impact of storm damage and helps people recover more
quickly. Nonprofits and social workers who serve veterans should ask them if
they have flood insurance and be trained to assist veterans in signing up for
the National Flood Insurance Program.
Thank you for taking the time to fill out the CAX Hurricane Harvey Recovery Survey. Combined Arms wants to
hear from you to learn more about veterans’ experiences of Hurricane Harvey and the recovery process. The
survey should take approximately 5-10 minutes. Thank you!
a. I am a post-9/11 veteran
If 2d == “None of the above,” tell them thanks but don’t let them fill out the survey.
3. Which of the following (if any) happened to you as a result of Hurricane Harvey? Choose as many as
apply:
a. The home or apartment I was living in at the time was damaged or lost.
d. I lost income.
f. I was injured.
g. I became ill.
h. I was hospitalized.
4. What was the zip code of your home or apartment right before Hurricane Harvey?
a. Enter number
5. If 3a checked. What is the current status of the home or apartment you were living in before the
storm? (Select one)
b. There is still minor repair work to do on my residence, such as painting or drywall patchwork,
and I am still living there.
c. There is still major repair work to do on my residence, such as roofing or flooring, and I am still
living there.
e. I moved to a new residence permanently (sold home or signed new lease) and am no longer
living there.
6. If 3b checked. What is the status of the vehicle(s) that was damaged or lost? (Select one)
7. If 3d or 3e checked. Has your income returned to what it was before the storm? (Select one)
a. Yes
b. No
8. If 3f/3g/3e checked. Has your health returned to what it was before the storm? (Select one)
a. Yes
b. No
9. If 3a-3h checked. Did you or someone in your household apply for FEMA aid after Hurricane Harvey?
(Select one)
c. No
10. When it comes to flood insurance, which of the following applies to you? (Select one)
a. I currently have flood insurance and had flood insurance before Hurricane Harvey.
c. I do not have flood insurance, but I had flood insurance before Hurricane Harvey.
d. I do not have flood insurance and did not have flood insurance after Hurricane Harvey.
11. In the days immediately or after Hurricane Harvey did you volunteer to help family members, friends,
or other people who you might know through clubs, churches or organizations? And if so, did you
volunteer with an organization for the first time? (Select one)
a. Yes, and I volunteered with at least one organization for the first time.
b. Yes, and I volunteered with organizations that I had volunteered with before the storm.
12. In the days immediately or after Hurricane Harvey did you receive any help from family members,
friends, or other people who you might know through clubs, churches or organizations? (Select one)
a. Yes
b. No
13. Have you done any of the following since Hurricane Harvey? (Check all that apply)
a. I moved to an area that is not on a flood plain and/or has a lower risk of flooding.
d. I became civically engaged on flooding issues (e.g., attended town hall, talked to a government
official or representative, voted on a bond proposal)
e. Other: open-ended
14. Do you agree or disagree with the following statement: I feel like things are back to normal in my life
since Hurricane Harvey. (Select one)
a. Strongly agree
b. Agree
c. Somewhat agree
d. Somewhat disagree
e. Disagree
f. Strongly disagree
a. Mental health
b. Employment
c. Home repairs
d. Legal assistance
e. Furniture assistance
f. Clothing assistance
h. Other (open-ended)
16. Is there anything else you would like to share with us about your experience of Hurricane Harvey and
recovery after the storm? (Open-ended)