Managed Retreat: Abandoning Flood-Prone Land—It's Already Happening

Understanding Managed Retreat in Hampton Roads

Flooding has long been a persistent issue in Hampton Roads, where factors like land subsidence, rising sea levels, and more intense storms create conditions for frequent and severe flooding. In response, cities across the region are investing in large-scale infrastructure projects to reduce risks. These efforts include constructing tide gates in Virginia Beach and planning sea walls in Norfolk. Some homeowners also take proactive steps, such as filling basements or elevating their homes, to enhance resilience.

However, a growing debate is emerging about whether some areas should be abandoned altogether. This approach, known as managed retreat, involves relocating people and infrastructure from regions vulnerable to climate change impacts. While it is already being implemented on a limited scale in certain parts of Hampton Roads, its broader adoption remains a topic of discussion.

What Is Managed Retreat?

Managed retreat differs from traditional resilience strategies that focus on reinforcing existing structures. Instead, it involves formally moving residents or infrastructure away from high-risk zones. While some relocation happens organically—homeowners deciding to move due to repeated flooding—managed retreat is a structured, strategic process.

Jessica Whitehead, executive director at the Institute for Coastal Adaptation and Resilience at Old Dominion University, explains that managed retreat aims to "get people out of harm’s way before a flood can hurt them again." Most initiatives are voluntary, often involving buyouts where local governments, states, or private entities offer property owners compensation to relocate.

These properties are then either converted into natural landscapes or used for more resilient infrastructure. However, the process is not without challenges. For example, federal funding restrictions and lengthy procedures have limited the frequency of buyouts. Despite this, some cities in Hampton Roads have successfully carried out voluntary acquisitions.

Examples of Managed Retreat in Practice

Newport News has completed 85 voluntary buyouts, primarily in the Salters Creek area, which has a history of tidal and storm surge flooding. Similarly, Virginia Beach has acquired two properties in Windsor Woods, though the decision was not solely based on flood risk. Chesapeake has conducted 49 acquisitions using FEMA funds, mostly in flood-prone areas covering nearly 50 square miles.

In Norfolk, five flood-prone properties were bought through FEMA’s Hazard Mitigation Assistance program. Each was deemed a repetitive loss, and the structures were demolished. The land was then designated as open space permanently. According to Kelly Straub, a city spokesperson, these buyouts are applied selectively due to strict criteria and long-term land-use restrictions.

Historical Examples of Large-Scale Retreat

Historical cases of managed retreat provide insight into the process. After Grundy, Virginia, was flooded in 1977, a major relocation effort was undertaken, costing $177 million. A new commercial district was built across the river, and a 17-acre flat parcel was created by bulldozing part of a mountain. This project faced controversy but ultimately reduced flood risks.

In Cedar Rapids, Iowa, after a devastating 2008 flood, over 1,300 homes were bought out using HUD funds. The process offered 107% of the pre-flood home value and was completed by 2014. Another notable case occurred in Texas after Hurricane Harvey, where Harris County mandated buyouts for an area that had flooded repeatedly.

Flood Risks and Insurance Challenges

Flood risks are expected to increase, with the National Oceanic and Atmospheric Administration reporting 27 disasters in 2024 that caused over $182 billion in damages. Climate scientist Joshua Elliot notes that the 1-in-100 year flood scenario is becoming outdated, with generational floods potentially occurring every 30 years.

The Natural Resources Defense Council found that nearly 7,000 properties in Virginia had repeated flood damage claims over 10 years, with most in Hampton Roads. Many of these properties are uninsured, and only a small percentage have taken measures to reduce risks.

Flood insurance is separate from standard homeowners' insurance, and many rely on the National Flood Insurance Program. As flood risks rise, so do insurance costs, prompting calls for more affordable options. Anna Weber, an NRDC senior policy analyst, emphasizes the need for better flood disclosure laws to inform buyers about risks.

Challenges to Managed Retreat

Despite the potential benefits, managed retreat faces several obstacles. Infrastructure improvements are costly, with Norfolk planning to spend $2.6 billion on resiliency projects. Virginia Beach estimates its drainage improvements will cost over $1 billion. Buyouts, while an alternative, can be expensive and challenging in competitive housing markets.

Moreover, buyouts may not always prevent new development in flood-prone areas. A study in North Carolina found that for every home bought, over 10 new houses were built in flood plains. The process is also slow, as seen in Princeville, North Carolina, where delays in funding and disagreements hindered progress.

Getting Buy-In from Residents

A key challenge is gaining support from property owners. Whitehead recalls a public meeting in Lumberton where a resident emphasized the personal significance of his home. She noted that focusing on terms like "sea-level rise" rather than "retreat" helps reduce the perception of failure.

Stiff and Whitehead argue that early conversations about managed retreat are essential. Broaching the topic before a disaster occurs allows communities to understand the process and consider alternatives. As Eliza Noe, a journalist, highlights, the future of managed retreat in Hampton Roads depends on the willingness of residents and local governments to engage in these discussions.