Guide to 

Expanding Mitigation 

MAKING THE CONNECTION TO ELECTRIC POWER 
Cover Photo: Work truck out for repair after storm on wet road 

Photo: Electricity pylons at sunset 

Photo: Martins Ferry and the Ohio Valley at night 

Electric power is essential for modern society to function. In addition to powering 

the lights in our homes and the technology we use, electricity is necessary for 

water, transportation and communications systems. Reliable electric power 

systems are paramount in an emergency, as they keep communities connected 

and sustain essential services. Despite the need for a reliable supply of 

electricity, the electric power sector is not typically engaged when communities 

plan for hazards. 

Disasters such as hurricanes, earthquakes, floods and wildfires pose a 

tremendous risk to power supplies by compromising a community’s electric 

infrastructure. Communities must consider such impacts in their hazard mitigation 

plan and projects to reinforce and reimagine their electric power systems now, 

before the next disaster. Regional power authorities, regulators, renewable energy 

advocacy organizations and industry experts should be engaged during the hazard 

mitigation planning process to share their insights on energy efficiency, renewable 

energy and resilience challenges. 

This Guide to Expanding Mitigation can help community 

officials work with the public and private sectors to 

support hazard mitigation, especially in the planning 

process and project development. This guide can 

help community officials initiate a conversation about 

mitigation investments that will make electric power 

systems more resilient. 

This Guide to Expanding 

Mitigation is part of a series 

highlighting innovative 

and emerging partnerships 

for mitigation. 

Cover Photo: Work truck out for repair after storm on wet road 

Photo: Electricity pylons at sunset 
Photo: Hurricane Sandy aftermath in Staten Island, N.Y. 

HOW NATURAL DISASTERS AFFECT ELECTRIC POWER SYSTEMS 

The most immediate and significant impact on the electric power sector during a 

disaster is loss of power. This is especially true for communities with aging or poorly 

maintained infrastructure. The impact on electric power systems depends on the scale 

and condition of the system — transmission, 

distribution and generation — as well as the 

severity of the event. During adverse weather 

events, like hurricanes, typhoons, floods, 

tornados or snowstorms, transmission and 

distribution networks are often disrupted; 

power cannot get from point A to point B. 

Inefficient delivery systems can result in 

congestion and poor service. Impacts on 

power generation units and substations can 

cause additional problems. Water damage is 

especially difficult to recover from, particularly 

from coastal flooding because prolonged 

exposure to saltwater causes corrosion. 

Maintaining a stable and efficient electric 

power system is key to creating a resilient 

community. Maintaining resilient electricity 

infrastructure minimizes the extent of power 

downtime a community experiences after a 

disaster. A resilient power system is less likely 

to experience the catastrophic effects of a 

natural disaster and is more easily repaired. 

WHAT IS “THE GRID”? 

Power grids connect 

homes, businesses and 

other buildings to central 

power sources. The grid is 

interconnected, meaning that 

any disruption to the grid has 

the potential to affect delivery 

across the entire system. 

When a home is disconnected 

from the grid, it loses access 

to the electricity that powers 

light, appliances, electric 

heating/cooling systems, 

and electronics, unless 

electricity can be generated 

through other means (e.g., 

solar panels, batteries or 

a household generator). 

Photo: Storm damage from Hurricane Maria

Post-disaster recovery is challenging for any electric power system, but that challenge 

is magnified if the existing infrastructure is not in peak condition. 

A community can prepare its power system before a disaster by: 

• Evaluating the system’s vulnerabilities — Are the generation units, substations 

and structures that house them well maintained? Has proper vegetation 

management been conducted for the transmission and distribution system? 

• Evaluating what is needed to bring a system back online after it goes down — 

Are there enough skilled workers and fuel supplies (e.g., diesel or propane) 

for generators? 

IMPACTS ON AGING AND POORLY MAINTAINED SYSTEMS 

Years of improper maintenance and poor vegetation management around 

electric infrastructure created a perfect environment for Hurricanes Irma 

and Maria to wreak havoc on power grids. In rural areas of Puerto Rico and 

the U.S. Virgin Islands, power outages lasted from 4 months to a year. The 

conditions in these island communities illustrate the need for technical 

overhauls and design solutions. Equally important are policies to ensure 

that investments in electric power infrastructure are sustainable. The 

latest and greatest technological solution may not be the best, given the 

operational limitations of these smaller, more antiquated systems that are 

not immediately equipped to handle the addition of new generation and 

control technologies. 

Photo: Hurricane Sandy aftermath in Staten Island, N.Y. Photo: Storm damage from Hurricane Maria
Photo: Power engineers working on high voltage power distribution station 

MAKING ELECTRIC POWER SYSTEMS MORE RESILIENT 

Community officials can work with electric power professionals to bolster the 

resilience of their local electric power sector and infrastructure before, during 

and after a disaster. They should start by asking questions such as: 

• Is tthe electric power system mapped—from production, to transmission, 

to the “last mile”—and do we understand the weaknesses and bottlenecks? 

• How do hazards such as hurricanes, earthquakes or wildfires affect electricity 

production and transmission systems differently? 

• How can we harden and support our electric power systems by redundancy and, 

also, overhaul and transition them to include more renewable, distributed systems? 

• What can we do to mitigate the effects of greenhouse gas emissions caused 

by producing electricity from traditional sources such as fossil fuels? 

• Was power lost in the aftermath of a disaster? What component(s) of the 

system failed? What component(s) of the grid functioned through the disaster? 

Preparedness and mitigation measures for electric power systems have different 

roles in making your community safer. Preparedness (such as having backup 

generators) increases your community’s capacity to respond to, and recover from, 

disasters more quickly. Mitigation is a more permanent solution to reduce disaster 

risk in the long run. Using disaster-resilient techniques to build or retrofit critical 

electric power infrastructure can mitigate risk. Examples include elevating 

substations above flood levels to improve a power system’s performance during 

floods and upgrading powerlines from wood poles to concrete, steel or composite 

poles to improve their performance during high winds. Investing in distributed 

(decentralized) generation and microgrids can also help mitigate the risk to an 

electric power system. 

Photo: Man installing insulation 

In addition to evaluating how hazards affect electric power production and transmission, 

emergency managers and local officials should include mitigation actions for electric 

power systems in the hazard mitigation plan. Electric power professionals recommend 

three central mitigation strategies for electric power systems: 

1. 	Increase efficiency by reducing the energy load per building: use energy-saving 

techniques, like upgrading insulation, reducing electricity loads from lighting and 

appliances, or revising building design guidelines to reflect local climatic conditions. 

2. 	Bury electric distribution lines to improve system reliability during bad weather 

or consider investing in concrete, steel or composite poles that can better 

withstand sustained hurricane-force winds. 

3. 	Develop distributed energy systems by investing in solutions like microgrids, 

which can be integrated into the traditional grid. 

Communities should only consider investing further in backup systems, like generators, 

after addressing issues with efficiency and load distribution. 

RESILIENT AND JUST ENERGY SYSTEMS 

Safeguarding the reliability of energy infrastructure includes examining 

how the system could support environmental justice. Think about which 

residents in your community are most vulnerable to respiratory issues 

from living near power plants that burn fossil fuels. Consider those with 

unreliable power supplies and inadequate heating/cooling. If you are 

upgrading your energy infrastructure to be more resilient to disasters, 

can it also be designed to protect your at-risk residents? 

Photo: Power engineers working on high voltage power distribution station Photo: Man installing insulation 
Photo: Solar farm panels 

ALTERNATIVE ELECTRIC POWER SYSTEMS 

Experts predict that extreme weather will continue to jeopardize electric power 

systems. The need to transition to renewable power sources (including solar, wind, 

hydro, biofuels and others) is immediate, and strategies to facilitate that transition 

should be expedited, especially in island communities. Rather than repairing a grid 

that does not provide sustainable or reliable power, communities should evaluate 

and shift to new solutions. For example, the U.S. Virgin Islands has a goal to reduce 

fossil fuel consumption by 60% by 2030, to reduce its dependence on expensive 

imported fuels. Similarly, New York City has a goal to create 70% of its power using 

renewable sources by 2030, and 100% by 2050. 

The path to using renewables is not straightforward, but resources are available 

to help communities weigh their options. Without an overarching national policy for 

renewables, many states have policies that regulate renewables and offer funding 

for interested communities. The cost of renewables has lowered significantly 

in recent years and is additionally supported by federal tax credits and similar 

programs in numerous states. 

Solar 

Solar technology has evolved considerably in recent years and is much more 

accessible. Many communities recognize that it is less expensive to generate 

their own electricity via solar power than to buy from a major supplier. They see 

solar technology as a hedge against traditional electricity inflation. Solar power 

helps mitigate the impact of future hazards; it provides redundancy in case of 

disasters if it has battery backup, and it reduces the emissions from the electric 

power sector that contribute to the impacts of climate change. Roof- or groundmounted solar systems can be installed in a storm-resistant manner. Floating 

solar arrays are an emerging option that can be placed in areas that do not require 

transmission to get energy where it is needed. Using solar power in emergency 

situations, however, is still not as competitive as fossil fuel-based tools, like 

diesel generators, because of economic and structural limitations. 

DID YOU KNOW?
 

Hydroelectric power is a significant source of renewable energy in the U.S. 

It comes from water flowing from a higher elevation to a lower elevation 

that is used to turn turbines and generators that produce electricity. 

Hydroelectric powerplants are located on rivers, streams, and canals 

and use dams to store water to be released as needed to generate 

power. Through its National Dam Safety Program, FEMA offers grants to 

rehabilitate dams, including those that support hydroelectric facilities. 

Renewable energy infrastructure is also at risk. Ground-mounted photovoltaic (PV) 

solar panel systems in Puerto Rico and the U.S. Virgin Islands were damaged during 

hurricanes Irma and Maria in 2017. This damage added demand to the already delicate 

grid and negatively affected the restoration time and price of the power supply. It also 

highlighted the need for proper design and installation to withstand high-power storms. 

To keep this from reoccurring, FEMA’s Mitigation Assessment Team recommended 

mitigation and preparedness best practices to protect the ground-mounted, gridconnected PV solar facilities. 

Microgrids 

In addition to renewables, microgrids can help communities build resilient electric 

power systems. In times of crisis, like storms or power outages, a microgrid can isolate 

itself from the main grid and operate independently, using local energy generation. 

A microgrid can be powered by distributed generators, batteries and/or renewable 

resources, like solar panels. Depending on how it is fueled and how its requirements 

are managed, a microgrid could run indefinitely. 

Microgrids can also cut costs or connect a local resource that is too small or unreliable 

for traditional grid use. A microgrid allows communities to be more energy independent 

and, in some cases, more environmentally sustainable. When developing a microgrid 

project for New Orleans after Hurricane Katrina, the U.S. Department of Energy 

considered the following questions: 

• 	According to community partners, what characteristics of extreme events would result 

in the worst consequence to the community? How is that consequence measured? 

• 	In these events, how does the grid perform? What other infrastructure services will 

be affected by a loss of power? What is the consequence of these service outages? 

• 	What grid modernization technology options will minimize this consequence and best 

improve community resilience? How would these options be designed to work within 

the current grid? 

• 	What scale and cost of grid improvements are needed to improve community 

resilience? How would resilience metrics be best defined and used for future 

community planning and adaption to future resilience challenges and needs? 

Photo: Solar farm panels 
ELECTRIC POWER REPRESENTATIVES 

Which organizations should you invite to engage in the planning process? The 

answer will vary based on the community, but consider organizations like these: 

• Regional energy companies. 

• Water and power authorities. 

• Renewable energy experts. 

• Academic institutions. 

• Energy nonprofits. 

• Local electricians. 

• Local community groups. 

• U.S. Department of Energy. 

• Federal Energy Regulatory 

Commission. 

Through its Energy Transitions Initiative, the U.S. Department of 

Energy offers technical assistance to support microgrid planning and 

design. This includes identifying assets, the duration of an outage for 

which the microgrid would need to run, and how to build the microgrid 

to operate as part of the grid under steady-state operations. 

RESOURCES 

Guides to Expanding Mitigation 

https://www.fema.gov/mitigation-risk-reduction 

Link to all available Guides to Expanding Mitigation. 

FEMA Hazard Mitigation Planning 

https://www.fema.gov/emergency-managers/risk-management/hazardmitigation-planning 

Review standards and guidance for the planning process. 

Database of State Incentives for Renewables & Efficiency 

https://www.dsireusa.org/ 

Learn about incentives and policies that support renewable energy 

and energy efficiency in your state. 

U.S. Department of Energy State and Local Solution Center 

https://www.energy.gov/eere/slsc/state-and-local-solution-center 

Access resources to enable strategic investments in energy efficiency 

and renewable energy technologies. 

Keep Safe: A Guide for Resilient Housing Design in Island Communities 

https://keepsafeguide.enterprisecommunity.org/en/energy-generation-backup 

Explore strategies for residential energy generation and backup. 

National Dam Safety Program 

https://www.fema.gov/emergency-managers/risk-management/dam-safety 

Access resources to promote and maintain effective dam safety programs. 

REFERENCES 

FEMA Mitigation Assessment Team (MAT). 2018. “Hurricanes Irma and Maria in 

Puerto Rico: Building Performance, Observations, Recommendations, and Technical 

Guidance.” https://www.fema.gov/sites/default/files/2020-07/mat-report_hurricaneirma-maria-puerto-rico_2.pdf 

FEMA Mitigation Assessment Team (MAT). 2018. “Hurricanes Irma and Maria in the 

U.S. Virgin Islands: Building Performance, Observations, Recommendations, and 

Technical Guidance.” https://www.fema.gov/sites/default/files/2020-07/mat-report_ 

hurricane-irma-maria_virgin-islands.pdf 

Jeffers R, et al. 2017. “A Grid Modernization Approach for Community Resilience: 

Application to New Orleans, LA.” Sandia National Laboratories. https://www.osti.gov/ 

biblio/1510648 

Lantero, A. 2014. “How Microgrids Work.” United States Department of Energy. 

https://www.energy.gov/articles/how-microgrids-work 

Nicholas C, et al. 2019. “Stronger Power: Improving Power Sector Resilience to 

Natural Hazards.” World Bank Group. https://documents1.worldbank.org/curated/ 

en/200771560790885170/pdf/Stronger-Power-Improving-Power-Sector-Resilience-toNatural-Hazards.pdf 

ACKNOWLEDGEMENTS 

We thank the following organizations, whose staff contributed their time toward 

advancing our understanding of mitigation and electric power: Enterprise Community 

Partners; Greenworks Development; FEMA Region 2; New York City Environmental 

Justice Alliance; U.S. Department of Energy; and University of the Virgin Islands. 

ENGAGE WITH US 

Are you a state, local, tribal or territorial official interested in making the 

connection between electric power and hazard mitigation? Are you an electric 

power professional interested in connecting with local officials to reduce risk 

from hazards? Please contact us at FEMA-ExpandingMitigation@fema.dhs.gov.