May 2025

FINA L R EPORT:
A Plan for Infrastructure Resilience

Maine Infrastructure
Rebuilding and Resilience Commission
 TA BLE OF CON TEN TS
Executive Summary. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

2025 Infrastructure Resilience Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23

I. Strengthen Infrastructure and Reduce Disaster Risk. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

II. Improve Disaster Preparedness, Response, and Rebuilding. . . . . . . . . . . . . . . . . . . . . . . . . . 44

III. Sustain Maine’s Momentum through Strategic Investments. . . . . . . . . . . . . . . . . . . . . . . . . 52

On January 12, 2024, Chipman’s Wharf, a 106-foot wharf on the

Narraguagus River in Milbridge was washed away by a devastating
storm, including an entire bait shed. Supported by grant funding
available to working waterfront businesses to rebuild, the wharf
was reconstructed later in the year to continue serving the local
fishing fleet. Credit: Island Institute
2 STATE OF M AINE
The Commission’s Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57

Executive Order. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 68

Commission Members. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70

Acknowledgements. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 72

Appendix: Implementation Actions by Year . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 73

Infrastructure Rebuilding and Resilience Commission 3

 May 7, 2025

Dear Governor Mills,

As co-chairs of the Infrastructure Rebuilding and Resilience Commission you established by Executive Order
in May 2024, we are pleased to deliver to you, the Legislature, and the people of Maine the state’s first Plan for
Infrastructure Resilience, the culmination of our work over the last year to inform and guide Maine’s response,
recovery, and rebuilding from extreme storms. This Plan builds upon the interim report we delivered halfway
through our work in November 2024, transitioning from a set of preliminary recommendations to a full-fledged
plan shaped by the same urgent and unifying theme: the State and its partners must act today to ensure the resil-
iency of our people, environment, and economy against future storms and climate-related impacts and to protect
the Maine we love for future generations.

The stories we heard from dozens of Maine people at our listening sessions throughout the state over the past year
paint a stark portrait of what our futures might look like without deliberate action and investment to improve
community resilience. More than 16 months after the January 2024 storms, both coastal and inland towns
report infrastructure still not fully repaired. Old Orchard Beach, according to Town Manager Diane Asanza,
was still recovering from the battering of a 2022 storm when the 2024 storm hit. Commission member Shiloh
LaFreniere, Town Manager in Jay, warned, “Towns are not prepared to deal with these storm impacts — they
do not have the resources in house and do not know what resources are available out of house.” Darren Woods,
Aroostook County EMA Director, noted, “Communities and agencies are not just complaining when we iden-
tify issues and areas for resilience. We are already working hard at resilience efforts at the local level.”

As you noted upon the delivery of our interim report, “Storms know no politics. They don’t care if you are a
Republican, Democrat, or Independent. They will flood our homes and businesses, wash out our roads and
bridges, and threaten the health and safety of our people.”

The nonpartisan nature of infrastructure resilience has remained consistent throughout our deliberations.
Maine, like all states, depends on federal funding and coordination for disaster preparedness and hazard mit-
igation, and on significant funding for recovery and rebuilding in the wake of disasters. As we finalized this
Plan for delivery, high-ranking officials in tthe federal administration publicly proposed the elimination of the
Federal Emergency Management Agency (FEMA), from which the Maine Emergency Management Agency
(MEMA) and regional emergency management agencies receive the bulk of their funding. At the same time,
FEMA announced the termination of the Building Resilient Infrastructure and Communities (BRIC) grant
program, a critical resource, with no replacement at the time of termination. Such sweeping and unprecedented
policy reversals fundamentally complicate this work.

Despite these significant headwinds, this Plan remains urgent and critical. Maine must anticipate scenarios in which
states bear greater responsibilities and costs for hazard mitigation, emergency preparedness, and disaster recovery.

The Plan we deliver to you and the people of Maine today aims to go beyond a compilation of recommendations
that sit overlooked on a shelf. It identifies agencies, organizations, and partners accountable for implementation
and sets forth timeframes for action, ranging from immediate steps to a decade in the future. We included met-
rics to track the overall progress of the Plan to inform decision makers and the public. This Plan charts a path to
a stronger, more resilient Maine by strengthening infrastructure and reducing disaster risks; improving disaster
preparedness, response, and recovery; and sustaining Maine’s momentum through strategic investments.

4 STATE OF M AINE
To that end, the Plan recommends that the new State Resilience Office tracks activity and reports the plan’s
progress. It also recommends that you as Governor establish an entity whose purpose is to receive those reports
and monitor implementation of the Plan’s strategies and actions.

Without relentless focus and attention, Maine risks losing the meaningful momentum it’s gained since the dev-
astating storms of December 2023 and January 2024, which prompted the creation of our Commission. Your
Administration and the Legislature committed an historic $60 million for storm relief for working waterfronts,
infrastructure projects, and business recovery, and, more recently, an additional $39 million through the newly
passed LD 1 to help Maine communities, homeowners, businesses, and emergency response personnel better
prepare for and withstand severe storms.

These investments will help to protect our communities against the havoc of future storms, from days-long
power outages that disrupt lives and economic activity, washed out roads that impede heating fuel deliveries
and emergency responders, flooding that puts drinking water systems at risk of contamination, and much more.

These investments will save lives, will save taxpayers money, and strengthen our economy. According to a recent
study released by the U.S. Chamber of Commerce, every $1 spent on climate resilience and preparedness saves
communities $13 in damages, cleanup costs, and economic impact. By that measure, the more than $100 mil-
lion that Maine has already committed will save over $1 billion in the coming years.

While that figure is impressive, it pales in comparison to the financial scale of Maine’s infrastructure and resil-
ience challenge. The state and communities will likely need billions in investments over the decades to come
to adequately prepare for the increasingly frequent and intense storms in our future. Philanthropy also has an
essential role to play in catalyzing innovation, filling funding gaps, and supporting community-led resilience
efforts. This is a daunting reality, but one we face together as a state unafraid to acknowledge the challenges of
today and to anticipate the challenges of tomorrow.

In closing, we along with all of the Commission’s members extend our gratitude to the many individuals who
contributed to the Commission’s work. This includes the many participants in the listening sessions, the offi-
cials who hosted us around the state, the numerous experts who presented to the Commission, and staff from
the Governor’s Office of Policy Innovation and the Future and the Maine Emergency Management Agency.

We thank you, Governor Mills, for this opportunity to lead the Commission and deliver a plan for a more
resilient Maine.

Linda Nelson, Economic and Dan Tishman, Principal and

Community Development Chairman of Tishman Realty &
Director, Town of Stonington Construction

Co-Chairs, Infrastructure Rebuilding and Resilience Commission

Infrastructure Rebuilding and Resilience Commission 5

 E X EC U TI V E SUM M A RY
A new era of storms and natural disasters has marked its arrival in Maine with dramatic and devastating results.
Between March 2022 and May 2024, Maine experienced an extraordinary nine natural disasters, each severe
enough to merit Presidential disaster or emergency declarations. The rising severity and frequency of these
storms and floods raise urgent alarms about the increasing risks of extreme weather in our state and drive home
the imperative that Maine plan for and invest in infrastructure resilience at the state, regional, and local levels.

These implications had not yet emerged when, in May 2024, Governor Mills established the Commission on
Infrastructure Rebuilding and Resilience by Executive Order and charged its 24 members with developing a
plan to reduce the risk of damage from extreme storms and floods, and actions to improve Maine’s ability to
respond and recover when the next disasters hit. As the Commission heard from affected communities and met
to develop this plan, six key messages informed its deliberations:

• The situation is urgent. Maine cannot assume • The cost of inaction far exceeds proactive invest-
that the recurring storms of the past three years ment, with studies repeatedly showing that every
are an anomaly. $1 invested in resilience likely avoids $13 in damage
and economic impact.
• Maine must become more active, capable, and
self-resourced in hazard mitigation, disaster • Maine needs to change how and where we build.
recovery, and climate resilience in anticipation of The state and communities must prepare for diffi-
more frequent disasters as well as changes in federal cult conversations about getting out of harm’s way
disaster management policies. and relocating critical infrastructure to safer areas.

• The financial scale of Maine’s infrastructure • The state will have to be strategic and efficient
resilience challenge is extensive, with hundreds with resources. Current funding and human
of millions needed in infrastructure investments capacity, both state and local, are insufficient.
over the next decade. Regional collaboration and capacity along with a
robust strategy for long-term funding of resilience
projects can make efficient use of resources.

As the Commission reviewed the final draft of this plan in March and April, changes at the federal level —
specifically the Federal Emergency Management Agency’s (FEMA) decision to sunset certain hazard mitiga-
tion funding programs — highlighted the need for Maine to work proactively to advance resilience and hazard
mitigation projects. Maine showed resilience and determination during the storms and must advance this work
in light of changes at the federal level. Maine’s state motto “Dirigo” means “I lead.” By implementing this plan,
Maine will be a national leader at tackling hazard mitigation challenges head-on.

The Commission’s final product, an Infrastructure Resilience Plan, provides strategies and actions that strengthen
infrastructure and reduce disaster risks; improve disaster preparedness, response, and recovery; and sustain
Maine’s momentum through strategic investments. The plan is a comprehensive approach to integrate resilience
principles deeply into decision-making at all levels of government.

6 STATE OF M AINE
 IN FR A STRUCT U R E R ESILIENCE PL A N SUM M A RY
The Commission’s Plan is organized into three pillars, each supported by a series of strategies and actions.

I. Strengthen Infrastructure and Reduce Disaster Risk

1. Identify, prioritize, and strengthen vulnerable infrastructure.

2. Assist communities to effectively assess and reduce risk.
3. Improve and protect energy infrastructure and increase energy resilience for customers.
4. Protect and promote resilience across a diverse mix of public and privately owned working waterfront
infrastructure.

II. Improve Disaster Preparedness, Response, and Rebuilding

5. Enhance communications during and immediately after emergencies.

6. Strengthen emergency coordination and rapid reaction capabilities across governments and with the
philanthropic and nonprofit sector to alleviate immediate post-disaster needs.
7. Expedite permitting for post-disaster rebuilding, infrastructure strengthening, and resilience projects.
8. Develop tools and education to make buildings more resilient.

III. Sustain Maine’s Momentum through Strategic Investments

9. Improve data and information sharing to help leaders make informed decisions about risk.
10. Maximize federal funding for disaster recovery and proactive resilience projects.
11. Develop long-term funding and financing strategies for infrastructure resilience.

Flooding during the severe storms of 2024 overtook roads in Bingham, Maine. Credit: DECD

Infrastructure Rebuilding and Resilience Commission 7

 The late Bill Kitchen, Machias Town Manager, describes the extent of flooding in Machias during the
January 2024 storm, when wind-driven waves and storm surge caused water to flow over the Machias dike,
damaging the structure and flooding adjacent downtown areas of Machias.

The plan will be implemented through cooperation and nearly 150 businesses and nonprofits. Additionally,
among state agencies; local, county, and tribal govern- the Federal Emergency Management Agency (FEMA)
ments; the nonprofit and philanthropic sector; the pri- directed over $32 million to communities and house-
vate sector; Maine’s institutions of higher education holds over the past two years for disaster recovery costs,
and continuing education; and the public. a number that is expected to grow as FEMA continues
payments to local governments for the damage to public
The plan identifies and builds upon several key areas
infrastructure in December and January.
of momentum in Maine. The plan reinforces the work
of the Maine Climate Council and anticipates activi- The Commission’s work is already bearing fruit. LD 1
ties that the State of Maine and its partners are begin- “An Act to Increase Storm Preparedness for Maine’s
ning, supported by a historic $69 million resilience Communities, Homes and Infrastructure” imple-
grant from the National Oceanic and Atmospheric ments several of the Commission’s key interim recom-
Administration (NOAA). The newly established mendations by providing funding for home resiliency
Maine Office of Community Affairs will house a State improvements, emergency communication and disas-
Resilience Office and work with state agencies to coor- ter recovery, and community flood risk management.
dinate resources and services for communities to build The plan leverages these new investments and identifies
resilience through a “one-stop shop” model of engage- opportunities to build on their success.
ment and assistance.
These are important initial investments but only a
Recognizing the urgency of the situation, the Governor start in meeting Maine’s long-term needs. The grow-
and the Legislature took initial steps in April 2024, des- ing severity of storms fueled by a warming climate, cen-
ignating $60 million for storm recovery and rebuilding turies of development in areas at risk, and the looming
damaged infrastructure with greater resilience. This possibility of a reduced federal role in disaster manage-
funding enabled repair and recovery investments in 43 ment are challenges that Maine must confront imme-
towns and cities, nearly 70 working waterfront facilities, diately with commitment, investment, and innovation.

8 STATE OF M AINE
 IN TRODUCTION

A New Era of Risk unprecedented devastation to infrastructure and com-

The dangers of extreme weather and natural hazards munities across the state. The damage to public infra-
have become undeniable in Maine over the past three structure reached at least $90 million, with millions
years, as a series of intense storms caused millions of more in losses for private homes and businesses.
dollars in damage and claimed four lives. Heroic action Between December 17 and 21, 2023, heavy rain-
by hundreds of first responders across the state likely fall combined with rapid snowmelt, partially frozen
saved many more lives. These storms raise alarms about ground, and pre-saturated soils to produce catastrophic
the risks facing our state and the need to plan for and flooding across three of Maine’s largest river sys-
invest in immediate and long-term infrastructure resil- tems and their tributaries, the Kennebec River, the
ience at the state, regional, and local levels. Androscoggin River, and the Saco River. Over a dozen
In a span of just four weeks during December 2023 and river gauges reached major or record flood levels follow-
January 2024, three historically severe storms caused ing heavy rain and snowmelt, requiring two munici-
catastrophic inland and coastal flooding, resulting in palities to perform emergency evacuations. Flooded
rivers caused the closing of hundreds of roads, strand-
ing entire communities and preventing emergency
Federal Policy Changes responders and power recovery crews from accessing
As the Commission reviewed the final draft of hard-hit areas for days. Furthermore, widespread, pro-
this plan in March and April 2025, the Federal longed, and damaging winds of 45-80 miles per hour
Emergency Management Agency (FEMA)
resulted in extensive downed trees and power lines,
ended the Building Resilient Infrastructure and
Communities (BRIC) grant program and other
leaving over 440,000 properties without power for
changes have been proposed to the structure several days. The storm claimed the lives of four people,
of FEMA. All states, including Maine, rely on including two whose vehicle was swept away by flood-
federal funding for disaster preparedness and waters. State officials estimate that damage exceeded
hazard mitigation, and on a coordinated federal
$20 million across 10 of Maine’s 16 counties. Some
response during recovery and rebuilding after
a disaster. of the hardest-hit areas were rural communities with
limited fiscal, staff, and community capacity for guid-
To ensure that lives and property continue to
ing recovery, as well as several counties that have been
be protected, Maine must — with urgency
— become more active, capable, and self- sites of prior declared disasters over the past year alone.
resourced in hazard mitigation, disaster recov-
ery, and climate resilience in anticipation of more The next storm, on January 10, 2024, caused significant
frequent disasters as well as further changes in flooding and infrastructure damage along the Maine
federal disaster management policies. This will coast. Heavy wind, rain, and flooding destroyed homes,
require much more robust state leadership and
buildings, and roadways. Record-high storm tides dam-
funding, as well as stronger partnerships and
collaboration with local governments, philan-
aged lighthouses and devastated docks, wharves, and
thropy, and the nonprofit and private sectors. piers serving Maine’s iconic and vital working water-
fronts. On January 13, just three days later, the state
experienced a second coastal storm and new record-
high storm tides that further damaged coastal homes,
businesses, beaches, and waterfront infrastructure.
Initial public infrastructure damage estimates from the

Infrastructure Rebuilding and Resilience Commission 9

 two storms were over $70 million, far surpassing those These events demonstrate an urgent need to invest
incurred from the December storm. With the start of now in long-term resilience strategies that avoid the
fishing season just months away, waterfront businesses ballooning and preventable costs of repeated cycles
that serve the industry faced a daunting timeline to of damage and rebuilding. With 3,500 miles of tidal
repair and rebuild. As in December, some of the most coastline, Maine has the fourth-longest coast in the
affected communities were smaller towns with fewer continental United States. The Maine coast is an eco-
resources on hand to navigate one of the most complex nomic engine for the state, attracting millions of visi-
recoveries in Maine’s history. tors annually and supporting working waterfronts for
the state’s important fishing, lobstering, aquaculture,
In response, Governor Mills requested federal disas-
and shipbuilding industries and related marine busi-
ter declarations for all three storms through two major
nesses. Rising sea levels and a rapidly warming Gulf of
disaster declaration requests. With additional storms in
Maine threaten coastal communities and the marine
March and May 2024, the state of Maine is now simulta-
resources they depend on. Maine’s central and western
neously grappling with the fallout from an unparalleled
mountain areas have been hit repeatedly with intense
eight major disaster declarations and one emergency
storms that caused severe flooding along major rivers
declaration over the past 21 months. This is a dramatic
and minor streams alike, resulting in serious infrastruc-
increase over recent decades when Maine had averaged
ture and economic damage to natural-resource-based
just one disaster or emergency declaration per year.
industries and important tourism sectors, such as out-
door recreation.

This culvert in Paris, Maine was constructed in 2023 to withstand extreme weather events, and was
undamaged during the storms in 2024. Credit: Maine DOT

10 STATE OF M AINE
Relentless warming trends on land and at sea drive extreme storms, rising seas, flooding, and drought, all of which
threaten our environment, heritage industries, infrastructure, and the future of our communities and economy.
Maine’s coastal and inland communities currently face numerous threats and challenges:
• Accelerating sea-level rise: The rate of sea level • Emerging threats: While flooding is one of the
rise continues to accelerate in Maine. Since 2000, most damaging hazards in Maine, communities
the rate of sea level rise is roughly 2.5 times faster and infrastructure also face threats from high
than the long-term trend since 1912. In 2023, winds, heat, wildfire, drought, and saltwater intru-
Maine’s three long-term tide gauges (in Portland, sion. As a densely forested state, high winds and
Eastport, and Bar Harbor) measured record-high wildfires that knock down trees are particularly
annual mean sea levels for six of the 12 months, threatening to the electric grid, transportation
an average of 6.1 inches above levels from the year networks, and buildings. Drinking water systems
2000. Annual mean sea level in 2024 ranked sec- are increasingly at risk from drought and saltwa-
ond, behind 2023, measuring an average of 5.5 ter intrusion. While the frequency of drought has
inches above 2000 levels, and new record water not increased in the historical record, precipitation
levels were set for five of the 12 months. Rising seas variability from year to year has increased (2020
threaten Maine’s coastal economies. The “Cost had the driest growing period on record, while
of Doing Nothing” analysis conducted in 2020 2023 had the wettest), straining wells and water
by the Maine Climate Council found that fore- systems across the state. Along the coast, increased
casted sea level rise by 2050 threatens more than demand for water during dry periods in summer
21,000 coastal jobs in tourism, fishing, and real months can cause saltwater to seep into aquifers,
estate, which is equivalent to 3 percent of Maine’s contaminating drinking water for islands and
workforce. coastal communities. High heat may affect trans-
portation and electric transmission infrastruc-
• Inland flooding: Inland flooding endangers peo- ture in the future, while near-term impacts may
ple and affects transportation, water, and other be health risks for the outdoor workers who build,
community infrastructure. In the next 30 years, maintain, and repair these and other systems.
approximately 2,300 inland road culverts have a
two-in-three chance of overtopping during flood
events, according to an analysis from The Nature
Conservancy in Maine. Failed culverts and roads
severely impair the ability to move people and
goods, deliver emergency services, and restore elec-
tricity and communications. In rural areas, lengthy
detour distances due to road washouts can inflict
financial and emotional burdens on individuals
and communities. Impaired infrastructure that
limits access to recreational sites for skiing, snow-
mobiling, boating, fishing, camping and other
activities can harm Maine’s vital tourism and out-
door recreation industries. Very often, businesses
that cater to outdoor recreation are seasonal oper-
ations. These businesses have only a few months to
earn a year’s worth of revenue, making any down-
time due to impaired infrastructure a substantial
threat.

Infrastructure Rebuilding and Resilience Commission 11

 Increased frequency and intensity of storm events: In recent decades,
Maine has experienced an average of one disaster or emergency declaration annually.

However, since March 2022, Maine has seen eight disaster

declarations and one emergency declaration:

DISASTER DECLARATION DISASTER DECLARATION

When: October 30-31, 2022 When: June 29, 2023
Where: Knox, Waldo, and Where: Franklin County
York Counties
What: Severe Storm
What: Severe Storm Flood Event
Flood Event
EMERGENCY DECLARATION
DISASTER DECLARATION When: September 15-17, 2023
When: December 23-24, 2022 Where: Across the State
Where: Franklin, Knox, Oxford, What: In Advance of Hurricane
Somerset, Waldo, and Lee’s Landfall
York Counties
What: Severe Storm DISASTER DECLARATION
Flood Event
When: December 17-21, 2023
Where: Androscoggin, Franklin, Hancock,
DISASTER DECLARATION Kennebec, Oxford, Penobscot,
When: April 30-May 1, 2023 Piscataquis, Somerset, Waldo, and
Where: Franklin, Kennebec, Knox, Lincoln, Washington Counties
Oxford, Sagadahoc, Somerset, and What: Severe Storm
Waldo Counties Flood Event
What: Severe Storm
Flood Event DISASTER DECLARATION
When: January 9-13, 2024
DISASTER DECLARATION Where: Cumberland, Hancock, Knox,
When: June 26, 2023 Lincoln, Sagadahoc, Waldo,
Where: Oxford County Washington, and York Counties

What: Severe Storm What: Severe Storm

Flood Event Flood Event

DISASTER DECLARATION
When: April 3-5, 2024
Where: Cumberland and York Counties
What: Severe Winter Storm

12 STATE OF M AINE
October 30-31, 2022 December 23-24, 2022 April 30-May 1, 2023

June 26, 2023 June 29, 2023 September 15-17, 2023

December 17-21, 2023 January 9-13, 2024 April 3-5, 2024

I nfrastructure Rebuilding and Resilience Commission 13

 THE I M PER ATI V E FOR ACTION
In the weeks and months following the December are also the first layer of defense against winter’s
2023 and January 2024 storms, Maine people, business coastal storms. The dunes were severely eroded by
owners, community leaders, and state agencies worked the January storms, leaving town and county offi-
cials worried about how to protect the community
diligently to repair and rebuild. Questions and uncer- from battering waves in the coming winter.
tainty swirled as owners looked upon damaged homes,
storefronts, wharves, and roadways. How quickly could • The towns of Rumford and Mexico are accustomed
it be rebuilt? Should it be rebuilt here? How would it to annual spring floods when snowmelt swells
be paid for? the rivers, but leaders shared their sense that the
December flood was completely unprecedented.
For many, urgency and cost were understandably the The Androscoggin River and its tributaries rose
primary concerns. With the depth of winter still ahead, faster than ever before, leaving officials and res-
many needed a reliable shelter for their families. Others idents with little time to prepare or evacuate. In
anxiously looked ahead to the next tourism or fishing Mexico, the Swift River reached the highest flow
rate ever recorded, claiming the lives of two resi-
season. In the western hills, that meant reopening as
dents. County emergency managers shared stories
rapidly as possible for ski season and outdoor recre- of deep fatigue from repeated disaster recoveries.
ation. On the coast, with the start of fishing season
just a few months away, mobilizing to rebuild wharves, • In Jay, a severe summer rainstorm in June 2023
piers, and other working waterfront infrastructure washed out roads and culverts in many locations.
took on an urgent resolve. In beach towns, sand dunes Repairs to the roads and culverts are complete.
that defend homes and infrastructure from the sea lost However, navigating complex FEMA reimburse-
ment systems consumed as much as 10 hours per
much of their size and may take years to regenerate nat-
week of the town staff’s time.
urally. Even after nearly a year and half, restoring both
human-made and natural protections remains front of • In Rockland, waterfront infrastructure sustained
mind for many. damage during the January storms. The city’s
multi-use piers and related facilities serve commer-
As the Commission toured the state, members heard cial and recreational vessels, house various marine
stories from town officials, emergency managers, first businesses, and enable transportation and emer-
responders, and business owners about the speed and gency services for island communities.
scale of damage and the challenges of recovery and
rebuilding. Officials from nearly every town expressed
shock at the number of severe rain or storm events
in recent years and the challenges of navigating the
rebuilding process.
• In Stonington, as the second storm in three days
barreled towards the town, community members
hurried to secure damaged wharves and bait sheds
with chains and, in one case, parked a forklift on a
damaged pier to prevent it from being carried away
on the next storm tide.

• In Old Orchard Beach, the sand dunes and beaches

that are the lifeblood of the summer tourism season

14 STATE OF M AINE
 Questions about how to rebuild infrastructure have
become commonplace. How much higher should roads
or wharves be to avoid the next flood? How much
stronger to withstand the next onslaught? In far too
many instances, decades-old flood maps and outdated
building codes did not offer sufficient answers for the
magnitude of the challenge. When confronted with
the need to rebuild quickly, communities, engineers,
contractors, and property owners frequently lacked
designs and approaches that could be trusted to with-
stand the next big storm.

• In Machias, the town offices were flooded and Last century’s thinking will not solve this century’s
severely damaged, as were businesses along Route problems. Maine needs new approaches to inform how
1. The dike that carries Route 1 and the Downeast and where communities rebuild. State policy, plans,
Sunrise Trail is critical to regional connectivity and and funding programs must align near-term needs with
popular for walking and recreational fishing. It was
long-term resilience goals. These new solutions must be
overtopped by floodwaters and town leaders feared
the dike might have been breached, until the waters available immediately in the aftermath of a disaster so
receded and revealed it to be damaged but intact. that when urgency and emotion are high, the path to
recovery is clear and actionable.
• In Aroostook County, which did not experience
severe conditions in December or January but The following are the most important messages the
has weathered previous severe storm events and Commission heard and the lessons that inform this
floods, officials voiced their concern about the lack plan:
of updated flood maps, as ice jams and flooding
• The situation is urgent. Maine cannot assume
become more frequent and less predictable. The
that the recurring storms of the past three years
county’s remoteness means that communities must
are an anomaly. Individuals, communities, and the
plan for extended periods without electricity, fuel,
state must prepare for storms and disasters that are
and other resources.
becoming more intense, more damaging, and more
disruptive to lives and economies in our state.
• In Hallowell, the Kennebec River rose and inun-
dated the downtown during the December 2023
• Maine must become more active, capable, and
storm. Floodwater filled the basements of down-
self-resourced in hazard mitigation, disaster
town businesses to the ceiling and in some cases
recovery, and climate resilience in anticipation of
lifted buildings off foundations. Business owners
more frequent disasters as well as changes in fed-
rushed to salvage the food, appliances, and mer-
eral disaster management policies. With the federal
chandise aided by the massive efforts of volunteers,
government sunsetting hazard mitigation pro-
employees, city workers, and first responders.
grams like the Building Resilient Infrastructure
Infrastructure is the backbone of our state and com- and Communities (BRIC) program and pub-
munities. It makes public safety and public health pos- licly proposing significant changes to the Federal
Emergency Management Agency (FEMA),
sible, and it underpins economies and the activities of
Maine must anticipate scenarios in which states
Maine people, households, and businesses. For many bear greater responsibilities and costs for hazard
people affected by the storms, the repeated episodes mitigation, emergency preparedness, and disaster
between 2022 and 2024 left little doubt that Maine has recovery. Such a shift would have significant impli-
entered a new era of storm intensity and vulnerability. cations for the state’s budget and fiscal health.

Infrastructure Rebuilding and Resilience Commission 15

 including over $2 billion for improvements and
upgrades to Maine’s transportation system; nearly
$800 million to modernize and strengthen the
energy grid; and over $600 million for resilience
projects that address clean water and wastewater
systems, rehabilitate aging infrastructure, and con-
serve Maine lands and waters.
As federal programs come to an end, state and local
governments must find ways to continue invest-
ments in infrastructure. A sustained funding plan
should put more emphasis on proactive risk mitiga-
tion, reducing the need for reactive disaster recovery
funding over time.
• The financial scale of Maine’s infrastructure
resilience challenge is extensive, with billions • The cost of inaction far exceeds proactive invest-
needed in infrastructure investments over the next ment. Extreme weather events are costing the U.S.
25 years. For example, Maine’s transportation infra- close to $150 billion each year, according to the
structure will require several hundred million dol- Fifth National Climate Assessment. The total cost
lars in flood resiliency improvements over the next of storms in Maine over the past three years likely
decade. Proactive investments in resiliency are far exceeds $100 million. We must pay, now or later,
more cost effective than the economic impacts and for improvements to our infrastructure, homes,
rebuilding costs from disasters. and businesses. The choice Maine faces is whether
Over the past four years, more than $110 million to make proactive investments to safeguard infra-
in state funds and $4.4 billion in federal funds has structure and communities against the fury of
been spent on proactive infrastructure resilience storms and floods we know will come, or to wait
and reactive disaster recovery. If federal policy is for those storms to hit and pay for the fallout —
headed toward a future in which states are increas- preventable loss of life, avoidable community dev-
ingly responsible for disaster recovery, then proactive astation, and unnecessary economic disruption.
risk reduction led by the state and communities is The 2020 “Cost of Doing Nothing” report iden-
imperative to Maine’s self-preservation. tified six municipal wastewater treatment plants
The state’s investments over the past four years that are vulnerable to inundation by sea level rise
include $39 million in 2025 for LD 1’s disaster in as little as 25 years. The replacement cost for
recovery and proactive resiliency initiatives, $65 these facilities could be $30 million to $90 million
million in 2024 for storm recovery and commu- if they are not adequately prepared for the impact
nity resilience, approximately $7 million in 2023 for of rising seas.
the Community Resilience Partnership and Maine
Infrastructure Adaptation Fund. Much of this was
one-time funding and more than half of these state
funds total went to disaster recovery needs rather
than proactive resilience projects.
Maine has received significant federal investment
over the past several years for resilient infrastructure.
The Maine Jobs and Recovery Plan (MJRP) distrib-
uted $78 million across 2021 and 2022 for clean
water and climate adaptation projects. Programs
funded through the Bipartisan Infrastructure Law
(BIL) and Inflation Reduction Act (IRA) have
invested over $4.4 billion in Maine since 2021,

16 STATE OF M AINE
 Every $1 Invested in Resilience Saves $13
Decades of studies by the National Institute of Building Sciences, and more recently by the
U.S. Chamber of Commerce, have shown that investments in proactive measures yield savings
many times greater by preventing and avoiding casualties, damage, and economic disruption.

• US Chamber of Commerce (2024 study):

The Preparedness Payoff: The Economic Benefits of Investing in Climate Resilience

“The study revealed that each $1 of investment in resilience and

disaster preparedness reduces a community’s economic costs after
an event by $7…in addition to the $6 of savings for damage already
assumed in our model. Combining the two ratios findsABOVE
ADOPT that every
BUILDING LIFELINE FEDERAL
CODE CODE RETROFIT RETROFIT GRANTS
$1 invested in resilience and disaster preparedness saves $13 in
Overall Benefit-Cost Ratio 11:1 4:1 4:1 4:1 6:1
economic impact, damage, and cleanup costs after the event.”
Cost ($Billion) $1/yr $4/yr $520 $0.6 $27
Benefit ($Billion) $13/yr $16/yr $2200 $2.5 $160
National Institute of Building Sciences (2019 report):
Riverine Saves:
Mitigation FloodMitigation Saves up to $13 per $1 Invested
6:1 across
5:1flooding,
6:1 hurricane
8:1 7:1
surge, wind, and fire.
Hurricane Surge N/A 7:1 N/A N/A N/A
○ Adopting the latest building code
Wind
requirements saves $11 per $1 invested. 10:1 5:1 6:1 7:1 5:1
Earthquake 12:1each
○ Above-code design and private sector building retrofits 4:1 13:1
save $4 per $13:1
cost. 3:1

○ Telecommunications, roads, power, water infrastructure retrofits save $4 per $1 cost.

Wildland-Urban Interface Fire N/A 4:1 2:1 N/A 3:1
○ Federal grants save $6 per $1 cost.

Infrastructure Rebuilding and Resilience Commission 17

 • Maine needs to change how and where we build. ○ Regional collaboration supported by regional
Most of Maine’s infrastructure was built for the capacity that makes efficient use of limited
last century. The climate and our population are resources and encourages cooperative problem
different today and will be different decades from solving. Storms and floods do not care about
now. The damage that communities suffered over municipal boundaries. Maine is a home rule
the past three years is largely the result of two fac- state where decisions with long-term effects
tors: a warming climate that is changing the fre- are often made at the municipal level. Maine
quency and severity of storms; and the growth of will need to lean into and leverage its experi-
Maine’s towns and cities over centuries in places ence addressing regionally significant issues
that today have higher risks of flooding, storm like infrastructure, transportation, and hous-
surge, and other natural hazards. Maine must ing to become more resilient.
simultaneously act to curb the causes of climate
change, adapt to increased risk, and anticipate ○ A strategy for long-term resilience funding
future risk when making decisions about where that 1) acknowledges the need for Maine to
and how to build. The state and communities must commit significant resources over the com-
prepare for difficult conversations about getting ing decades to protect and prepare commu-
out of harm’s way and relocating critical infrastruc- nities and infrastructure for natural disasters;
ture to safer areas. 2) recognizes that the state’s public resources
will be insufficient and must be deployed effi-
• The state will have to be strategic and efficient ciently; and 3) develops new sources of fund-
with resources. Funding and human capacity, ing, finance, and insurance from within and
both state and local, are insufficient to individu- beyond the state budget.
ally assist each of Maine’s nearly 500 cities, towns,
plantations, and tribal communities. Ensuring that
every community in Maine is prepared for future
storms and disasters will require:

On May 21, 2024, Governor Janet Mills signed an Executive Order on the wharf in Stonington to establish the
Infrastructure Rebuilding and Resilience Commission in the wake of historic storm damage across the state.

18 STATE OF M AINE
 M A IN E’S MOM EN T UM IS GROW ING
On May 21, 2024, Governor Mills created the Infrastructure Rebuilding and Resilience Commission by
Executive Order. The Commission was charged with reviewing and evaluating Maine’s response to the December
2023 and January 2024 storms, identifying crucial areas for near-term investment and policy needs, and devel-
oping the state’s first long-term infrastructure plan to ensure that Maine is ready for the harsh storms ahead. The
Commission complements and reinforces the work of the Maine Climate Council, which has defined “resil-
ience” in the state’s climate action plan, Maine Won’t Wait, as the “ability of a community, business, or natural
environment to prepare for, endure, react to, and move forward from the impacts of climate change.”

Maine’s response to and recovery from these disasters hinges on resources from individuals, businesses, philan-
thropy, and a host of local, state, and federal sources. In April 2024, Governor Mills and the Legislature allo-
cated $60 million to rebuilding public infrastructure, repairing critical working waterfront piers and wharves,
and assisting small businesses struggling with recovery costs. Awards were distributed across three programs
targeting different impacted entities:

1. Through the Maine Infrastructure Adaptation Fund, Maine Department of Transportation (Maine DOT)
awarded over $25 million to 43 municipalities to mitigate the impact of intense storms, flooding, and rising
sea levels. Grants supported 22 culvert replacement projects; 13 road, bridge, and stormwater projects; and
4 water and wastewater projects.

2. Maine DOT and the Department of Marine Resources awarded nearly $23 million in grants to reconstruct
and improve damaged wharves and piers, rebuild and restore key marine support buildings, and repair and
upgrade fuel and electrical systems at nearly 70 working waterfront businesses.

3. The Department of Economic and Community Development awarded $10 million in grants in the first
round of the Business Recovery and Resilience Fund program. Nearly 150 businesses and nonprofits received
grants to help with design, permitting, and construction costs for projects that address the impacts of the
previous winter’s storm.

Infrastructure Rebuilding and Resilience Commission 19

 Historic Investment in Climate Resilience
In October 2024, Maine kicked off a major $69 million climate resilience grant, funded through the National
Oceanic and Atmospheric Administration’s (NOAA) Climate Resilience Regional Challenge. Funds are
being used to protect Maine’s communities, environment, and working waterfronts from extreme storms,
flooding, and rising sea levels. Over the next five years, Maine will implement three integrated climate
resilience-building strategies that advance the recommendations outlined in Maine Won’t Wait, Maine’s
Climate Action Plan, and collectively build the capacity of underserved, rural, and tribal communities.
Strategies include: build enduring community resiliency, reduce climate impacts through nature-based
solutions and investments in green infrastructure, and strengthen the resilience of working waterfronts.
Examples of activities under each strategy are outlined here:

• Building Enduring Community Resiliency: expanding support to communities through the Community
Resilience Partnership, establishing a statewide Resilience Collaborative to provide towns and Tribes
with services to plan, design, and implement resilience and risk-reduction projects, supporting invest-
ments in critical infrastructure projects through the Maine Infrastructures Adaptation Fund, engineer-
ing and design support for local and regional green infrastructure projects, and establishing a State
Resilience Office.

• Reduce Climate Impacts Through Nature-based Solutions and Investments in Green Infrastructure:
development of climate risk and assessment tools and decision support resources for Maine’s inland
and coastal communities, placement of Maine Shore Corps Stewards around the state to support green
infrastructure opportunities, demonstration projects to model nature-based solution implementa-
tion and regional collaboration across state agencies, a cross-agency permitting forum to advance
climate-related changes to Maine’s permitting process, implementation of a new Climate Resiliency
Conservation Fund for land acquisition, personnel across state agencies and project partners to pro-
vide capacity expertise, and technical assistance to Maine communities.

• Strengthen the Resilience of Working Waterfronts: development of a statewide working waterfront

strategy, dedicating funds for working waterfront resilience project, and implementation of the Seafood
Economic Accelerator of Maine Roadmap.

In July, Governor Mills toured Fisherman’s Wharf in Portland before a press conference with
NOAA to announce the recipients of $575 million in highly competitive Climate Resilience Grant
Challenge awards to strengthen and protect communities and working waterfronts.

20 STATE OF M AINE
Additionally, the Governor and Legislature allocated
$5 million to the Community Resilience Partnership
for grants to communities for vulnerability assessments
and proactive risk reduction and community prepared-
ness projects. The program provides grants and tech-
nical assistance to municipalities, tribal governments,
and unorganized territories in Maine for projects that
increase resilience to extreme weather, improve energy
efficiency, and transition to clean energy. More than
260 communities in Maine are actively participating
in the program, which has awarded over $16 million in
grants to 276 municipal and tribal community resil-
ience projects since it was established in 2021. to towns, cities, tribal governments and regional enti-
ties to help them better plan for common challenges,
Federal disaster relief and recovery resources aug-
pursue solutions, and create stronger, more resilient
mented the state’s rebuilding funds. In 2024, impacted
communities. MOCA will support community and
families and households in Maine received $11.4
regional work on issues related to land use and devel-
million in relief funds through FEMA’s Individual
opment; housing and building codes; and community
Assistance program for the December and January
resilience and floodplain management. A new State
storms. An additional $21.2 million has been reim-
Resilience Office within MOCA will coordinate
bursed to municipal governments and the state through
the implementation of the NOAA grant’s activities,
FEMA’s Public Assistance program for the disasters
new initiatives stemming from the LD 1 legislation
that occurred since October 2021.
described below, and the implementation of this plan.
Last year, Maine competed successfully for a $69 mil-
The Commission’s interim report published in
lion grant from the National Oceanic and Atmospheric
November 2024 suggested strategies to reduce the risk
Administration (NOAA) to improve the resilience of
of extreme storms and floods and actions to improve
communities, the environment, and working water-
Maine’s ability to respond and recover when the next
fronts to extreme storms, flooding, and rising sea levels.
disasters hit. Implementation has begun on several
This funding enables an ambitious and wide-reaching
interim recommendations through legislation and
scope of work that accelerates existing programs like
agency action. Other interim recommendations are
the Community Resilience Partnership and Maine
carried forward in this plan as actions for the state and
Infrastructure Adaptation Fund, while developing new
its partners.
data, tools, regulatory options, and partnerships that
will drive resilience outcomes for years to come. In January, the Governor and bipartisan leaders of the
Legislature took an important first step to implement
Much of the activity funded by the NOAA grant will
the Commission’s interim recommendations. LD 1
be coordinated by the newly created Maine Office of
“An Act to Increase Storm Preparedness for Maine’s
Community Affairs (MOCA). This standalone agency
Communities, Homes and Infrastructure” creates the
in the executive branch will foster better communica-
new State Resilience Office within MOCA and invests
tion and partnerships between the state and commu-
$39 million in resilience measures, including:
nities. MOCA will serve as a one-stop shop within
state government to provide coordinated and efficient • $15 million to launch a Home Resiliency Grant
planning, technical assistance, and financial support Program for homeowners to strengthen roofs or

Infrastructure Rebuilding and Resilience Commission 21

 floodproof basements in their primary residence to • $800,000 to update emergency communications
protect against severe weather damage and reduce technology and early warning systems at MEMA.
insurance losses.
• $750,000 to establish the Safeguarding Tomorrow
• $10 million for the Disaster Recovery Fund at the Revolving Loan Fund at MEMA, which will lever-
Maine Emergency Management Agency (MEMA) age additional federal funds to create a self-sustain-
to provide the state’s required share of the non-fed- ing source of capital for infrastructure rebuilding
eral match for federal disaster recovery funds. and strengthening projects.

• $9 million to launch the Flood Ready Maine ini- Maine has generated significant momentum through
tiative at the State Resilience Office, improving these and other state government efforts as well as across
flood models, updating flood maps, and building hundreds of communities, organizations, and businesses.
regional capacity for floodplain management. This is just the start of the work that must be expanded
and accelerated for Maine to meet the challenges ahead.

LD 1: Preparing Maine’s Communities,

Homes and Infrastructure for Storms
“An Act to Increase Storm Preparedness for Maine’s Communities, Homes and Infrastructure” was
introduced to the 132nd legislature as Legislative Document 1 (LD 1). Key components of the Act include
establishing a Home Resilience Program through the Bureau of Insurance, improving emergency commu-
nications and disaster recovery funds, and establishing a State Resilience Office and Flood-Ready Maine
initiative. All of LD 1 was funded by existing Other Special Revenues and federal funds, with no General
Funds required.

• Home Resilience Program, $15 million: Grant program for homeowners to strengthen primary
residences against severe weather damage and reduce insurance losses (e.g., roof strengthening,
basement floodproofing).

• Maine Emergenc y Management

Agency, $12 million: One-time funding
for Disaster Recovery Fund as match
for FEMA recovery funds, establishing
a Safeguarding Tomorrow Revolving
Loan Fund and a limited-period contract/
grants specialist, and updating commu-
nications technology and early warning
systems and a limited period communi-
cations system manager.

• State Resilience Office and Flood-Ready

Maine Initiative, $9.6 million: Establish
the State Resilience Office at MOCA
and federally funded positions, Flood-
Ready Maine initiative to improve flood
models and maps and develop an online
data hub and geospatial data manager,
Regional Certified Floodplain Manager
initiative to increase NFIP participation
and program coordinator.

22 STATE OF M AINE
Parts of Route 133 in Jay, Maine sustained heavy damage from runoff during an historic summer rainfall in
June 2023 that required months of repairs. Credit: Maine DOT

2025 IN FR A STRUCT U R E R ESILIENCE PL A N

The Commission developed the strategies and actions that follow by traveling to and learning from impacted
communities around the state, hearing from experts in Maine and other states, and drawing upon the knowl-
edge and experience of its members. The plan begins to consider the breadth of resources and capabilities needed
over the next decade to lead Maine toward a more resilient future.

With the frequency and intensity of storms seemingly increasing every year, Maine must accelerate action, mak-
ing both immediate preparations for the next storm and investing in capabilities and systems that build trans-
formative, long-term resilience. The Commission’s plan proposes a comprehensive set of reinforcing actions,
capabilities, investments, and policies that build upon Maine’s current momentum.

Overview & Scope

The Infrastructure Resilience Plan is organized into three pillars:

1. Strengthen Infrastructure and Reduce Disaster Risk includes activities for identifying and
reducing risk to infrastructure and assisting communities in Maine to understand and manage their risks.

2. Improve Disaster Preparedness, Response, and Rebuilding contains activities to improve the
readiness of Maine’s communities, infrastructure, and emergency systems for future disasters.

3. Sustain Maine’s Momentum through Strategic Investments outlines investments to sustain and
grow the capabilities and resources Maine will need to stay resilient in the decades to come.

Infrastructure Rebuilding and Resilience Commission 23

 This plan considers both public infrastructure and the plan’s progress and providing feedback to the lead
essential private infrastructure located in Maine. agencies and organizations.
Public infrastructure in this plan refers to facilities,
The Commission makes the following two
assets, and systems that are owned, operated, and main-
recommendations:
tained by public entities such as the state, tribal, county,
and municipal governments to provide access, protec- • First, that the State Resilience Office be assigned to
tion, or other services to people in the state of Maine. regularly collect information from each of the lead
Examples include roads and bridges; drinking water, implementing agencies and organizations about
the implementation status of each strategy and
wastewater, and stormwater treatment facilities; and
action, including efforts to secure new resources
civic infrastructure such as town offices, fire and police for actions that do not have existing resources.
facilities, and schools. Many other essential services are
provided by private infrastructure, such as the electric • Second, that the Governor establishes a body
grid, communications and broadband infrastructure, whose purpose is to monitor implementation of
health care facilities, and vital economic infrastructure the plan’s strategies and actions. The body should
such as working waterfronts. The plan also includes a be smaller in number than the Commission and
handful of actions that can help strengthen or protect be of a similar composition of representatives from
state agencies, municipal governments, regional
non-infrastructure private property through incen-
organizations, the private sector, the nonprofit sec-
tives, higher standards, and education. tor, and the philanthropic community. The body
should meet at least twice a year to receive reports
Tracking & Accountability from the State Resilience Office on the status of
Each of the three pillars contains several strategies, implementation and discuss communications with
which in turn contain a table of actions for imple- and from key constituencies.
mentation. Each action is assigned to a lead agency or
organization as well as potential partners who can con- Timeframes & Sequencing
tribute to implementation. With over 50 actions and Each of the plan’s strategies includes tables containing
more than a dozen implementation leaders and part- specific actions for implementation. A timeframe for
ners, the plan requires 1) an entity that will track activ- each action suggests the ideal period in which the activ-
ity and report the plan’s progress, and 2) an entity that ity should be carried out.
receives those reports, provides accountability for the Generally, actions identified for “0-2 years” either have
plan’s outcomes, and assists in connecting to import- existing funding and staffing resources or can be ini-
ant constituencies for the purposes of communicating tiated within existing funding and authorities. These
early actions may be foundational to actions that come
later, unlocking potential interdependencies and mak-
ing possible more ambitious plans and strategies in the
future.

Actions identified for “3-5 years” are likely to require

new resources, new budget allocations, or new legisla-
tive authority. The lead entities and partners for these
actions should begin now to consider how to develop
the resources and capabilities needed to execute these
intermediate actions.

24 STATE OF M AINE
The longer-term actions identified for “6-10 years” are Measuring Progress
not low-priority items. In fact, many of these actions Tracking the progress of the infrastructure plan
would significantly accelerate Maine’s ability to informs decision makers and the public, and helps eval-
increase resilience to extreme weather, floods, and other uate whether evidence-based adjustments, enhance-
changing natural hazards. However, these are actions ments, or replacements to policies and investments are
that may require additional conceptual development, necessary to meet resilience objectives. The following
planning, and investment or have outcomes that can intended outcomes and key performance measures are
be expected accrue on longer timelines. There is little established by the Commission to track the overall
reason for these actions to be delayed should favorable progress of the plan.
circumstances arise earlier than planned.

INDICATORS OF PROGRESS

Increased Financial Resources

Amount of state, federal, and philanthropic funds allocated annually
to improving the resilience of state-managed infrastructure (roads,
bridges, facilities, state parks, etc.).
Amount of state, federal, and philanthropic funds allocated annually
to the Maine Infrastructure Adaptation Fund, Community Resilience
Partnership, and other community assistance for resilient infrastructure.

Increased Participation in the CRP &

Awareness of Natural Hazards
Percent of municipal and tribal governments actively enrolled or working with a
service provider to enroll in the Community Resilience Partnership.

2035 TARGET 80% of municipal and tribal governments (currently 53%)

Percent of municipal and tribal governments that complete vulnerability assess-

ments with funding and technical assistance from the Community Resilience
Partnership or other sources.

2035 TARGET 50% of municipal and tribal governments (currently 20%)

Increased Flood Risk Information

Percent of organized and unorganized communities with flood
hazards areas that have digitized flood maps.

2035 Target
100% of communities (currently 66%)

Infrastructure Rebuilding and Resilience Commission 25

 Legislation & Funding of building resilience. The state will work with stake-
As the sections that follow will describe, there is near- holders, including members of the implementation
term work in the plan that is already under way or has monitoring body, to identify and reach key audiences
resources allocated for the stated purpose. The plan and constituencies. Key audiences that can eventually
indicates the status of these actions and identifies exist- become partners for communication might include the
ing or anticipated resources that support them. regional councils; municipal, county, and tribal gov-
ernments; service provider organizations; businesses;
Many of the actions in the plan will require new nonprofits, and the philanthropic community.
resources. The state and communities will need to
consider their needs comprehensively and assess the The state will work with stakeholders to identify
available sources of funding. Federal and state grants existing venues for engagement where key audiences
will be important sources but ultimately insufficient. already gather, such as town council meetings, confer-
State and local governments will need to consider other ences, government and industry association meetings,
ways of generating new resources, whether through webinars, and others. The state will develop engage-
increasing revenues, borrowing, or relying on insur- ment materials such as slide decks and talking points.
ance — with sound approaches potentially applying a Importantly, the state and stakeholders will also work
mix of all three. together to gather and communicate the stories of peo-
ple, communities, and businesses who are impacted by
Communication & Education severe weather and other impacts of climate change as
This plan is an opportunity to engage people, commu- well as those who experience the benefits of the plan’s
nities, and businesses in the urgency and the processes strategies.

26 STATE OF M AINE
 I. Strengthen Infrastructure and Reduce Disaster Risk

1. Identify, prioritize, and strengthen assessments build on and complement other ongoing
vulnerable infrastructure.
risk analyses and planning efforts, including MEMA’s
A whole-of-government approach is needed to make state hazard mitigation plan and dam safety program,
Maine’s infrastructure more resilient. Governments long-term capital project planning by Maine DOT and
at the local, regional, and state levels need to under- other agencies, and the Public Utilities Commission
requirement for climate protection planning by the
stand what infrastructure is most vulnerable, priori-
major electric utilities.
tize needs, allocate scarce resources, and take action to
mitigate urgent risks. To help prioritize investments Nearly 100 communities have completed or are cur-
within categories of vulnerable infrastructure, the rently conducting vulnerability assessments with
Commission suggests that state agencies and commu- grants from the Community Resilience Partnership,
nities consider the following criteria: 1) protection of Coastal Communities Grant Program, Shore and
life safety, 2) preservation of public health, and 3) pre- Harbor Planning Grant Program, and assistance from
vention of economic damages. service provider organizations. Uncovering vulnerabil-
ities deeper within systems and understanding the risk
Components of this work are underway. State agencies of multiple “cascading” or “compounding” failures may
are currently conducting vulnerability assessments of require more effort and sophisticated methods than
state-owned and leased assets that will be completed most communities can muster alone, so assistance is
in early 2026. The assessment is detailing the exposure necessary. Last year the Partnership added new techni-
of buildings and facilities to changing natural hazards, cal assistance grants specifically for vulnerability assess-
determining the state’s risk-tolerance for certain asset ments. To date, 31 communities have partnered with
types, and developing interventions to mitigate risks regional councils and other service provider organiza-
to the assets, operations, and agency missions. These tions through this opportunity.

Damaged working waterfront structures in New Harbor show the force of storm surge on waterfront
infrastructure. Credit: Island Institute

Infrastructure Rebuilding and Resilience Commission 27

 Critical Infrastructure:
Protecting People through the Built Environment
Billions of dollars are needed for long-term infrastructure improvements for any given sector. The Commission
was tasked with examining the challenge Maine faces in long-term planning, and opportunities to avoid cata-
strophic costs and impacts through creative solutions. “Critical infrastructure” is distinguished from all infra-
structure by the impact that disruption would have on public safety, security, health, and the economy. Bridges,
roads, wastewater treatment plants, drinking water, communications, and working waterfronts fit within this
category to varying degrees. The degree of criticality for a given structure depends on factors like its condition,
age, and the services it provides. In the context of climate resilience and extreme events, the vulnerability of
critical infrastructure is dependent upon its level of exposure to hazards (such as flooding or high winds) and its
ability to withstand and recover from impacts. Regular maintenance and repairs are one piece of ensuring safety,
and strategic resilience investments are essential for long-term durability and adaptability.

Wastewater Treatment Plants

There are 150 publicly owned wastewater treatment
facilities in Maine. Wastewater infrastructure and facil-
ities are often located in places that are low lying to
take advantage of gravity fed collection systems and
nearby surface waters for discharge, making them
susceptible flooding. These facilities contain piping,
mechanical systems, and electronic equipment, which
can be damaged when submerged by floodwaters.
According to the most recent Environmental Protection
Agency Clean Watersheds Needs Survey, Maine will
need to spend more than $2 billion to meet waste-
water improvement and resilience needs. The Maine
Department of Environmental Protection (DEP) has Communications
conducted flood and hazard risk assessments for many
Reliable communication system infrastructure is critical
of the facilities and support mitigation efforts through
for emergency management, ensuring timely dissem-
a revolving loan fund and loan forgiveness with climate
ination of warnings, coordination of response efforts,
resilience planning. Resilient solutions may include
and public safety during disasters. Reliable internet and
relocation, elevation, and hard armoring of facilities, all
phone services allow emergency responders and pub-
of which are in addition to existing maintenance needs.
lic officials to share updates about extended outages,
road closures, and other infrastructure changes such
Drinking Water
as drinking water advisories. Effective communication
Drinking water infrastructure in Maine includes both was one of the biggest issues raised by communities
public water systems and private wells. Both the qual- in listening sessions across the state. The ability of
ity and quantity of drinking water needs to be ensured Maine people to communicate with one another is vital
for all Maine people. In collaboration with MEMA, the to relaying information between family, friends, and
Maine Center for Disease Control & Prevention (CDC) neighbors. In communities that may already have lim-
has surveyed all public water systems to assess risk, ited access to broadband or cell service, such as rural
including an analysis of flooding hazards at all source or remote areas, or populations that may have addi-
wells. The survey highlighted the vulnerability of pub- tional communication barriers such as older Mainers
lic water sources to climate impacts, such as drought, or the non-English reading public, wide-reaching and
saltwater intrusion, flooding of public wellheads, power accessible communication is particularly important. As
outages, and pollutant runoff. To address these risks, climate-related threats intensify, resilient and redun-
the Maine CDC is prioritizing redundant sources and dant communication networks help states maintain
systems, backup power, vulnerability assessments, connectivity, support first responders, and facilitate
and emergency plans for local drinking water systems. rapid recovery efforts.

28 STATE OF M AINE
Roadways, Culverts, and Bridges
Reducing vulnerabilities across transportation infra-
structure is essential for safety, effectiveness, and cost.
Between 2014 and 2024, Maine DOT received approx-
imately $1.5 million annually in emergency relief dol-
lars from the Federal Emergency Management Agency
(FEMA) to repair storm damage. As one of its efforts to
prepare for future storms, Maine DOT has started pre-
liminary engineering on seven climate-related projects
located in coastal environments that currently experi-
ence flooding. Construction cost estimates have been
completed on 5 of the 7 projects, with estimates rang-
ing from $3 million to $45 million dollars per project.
As a large, rural state, Maine’s roadways and bridges
are critical to the restoration of power and are a life-
line to accessing needs such as food and medical care.
Culverts are essential elements of flood prevention
and the protection of roadways for both coastal and
inland environments. A large number of state and local
culverts are undersized and at risk of overtopping or Working Waterfronts
washing out during storm events, causing a road to be Of Maine’s 3,500 miles of coastline, less than 20 miles
closed until repairs are possible. Maine DOT has iden- is considered working waterfront. Maine’s working
tified 8 miles of state-managed roads that are pro- waterfronts are vital to the state, both economically
jected to experience flooding in the 1.5-foot sea level and culturally, and access to the ocean is crucial to
rise scenario and may identify more roadways at risk Maine’s identity and to the commercial fishing and
when new data is available. aquaculture industries. Infrastructure such as docks,
wharves, and piers were devasted during the severe
storms of January 2024, highlighting the need to
strengthen and protect public and private working
waterfront access. The majority of working waterfronts
are privately owned, and there are ongoing conversa-
tions among stakeholder groups about strategies and
partnerships to protect working waterfront properties
and shoring up aging and vulnerable infrastructure.

Electric Grid
Recent extreme weather and disasters have demon-
strated the need for increased resilience and reliabil-
ity of the electric grid in Maine. Reliability data and
reporting, grid planning, and grid innovation and mod-
ernization are three approaches to understanding and
addressing vulnerabilities of the energy grid. In 2022,
the Legislature required Maine’s two investor-owned
utilities to file integrated grid plans and all electric util-
ities to file climate change protection plans that ensure
utility infrastructure is prepared for future storm events
and ready to transmit and distribute electricity to its
customers. In 2024, Governor Mills announced $6.6
million in federal grant awards to six Maine utilities and
technology providers to deploy electrical grid resilience
projects in communities across the state.

I nfrastructure Rebuilding and Resilience Commission 29

 Critical infrastructure: Physical systems, facilities, and assets (such as buildings, roads, and wastewater
treatment) vital for the functioning of society, whose disruption would impact public safety, security,
and health. Critical infrastructure is also determined by economic stability and the livelihoods impacted
by the destruction of a structure, such as wharves and piers in Working Waterfronts.

A work crew wraps up installation of the new underground stormwater retention system in Damariscotta
last September. Credit: Town of Damariscotta

As the state and communities identify resilience needs and projects, Maine will need a robust workforce of planners,
engineers, and construction workers to carry out these projects. The private sector depends on a reliable stream of
projects to justify investments in new equipment and additional personnel. With funds from the state’s NOAA
grant, the Community Resilience Partnership
will make engineering services available at no cost
to communities. These services will take 20 local Flood Risk Disclosure Law
green infrastructure projects from concept to
In April 2024, the Maine Legislature passed a flood
design, resulting in engineering plans that com- disclosure law requiring real estate sellers to provide
munities can use to seek implementation funding buyers with flood risk information. Sellers must dis-
and bid for construction. As technical assistance, close if a property is in a FEMA-designated flood hazard
capacity building, and planning grants increase area, any past flood events, active flood insurance costs,
and prior flood-related claims or disaster aid. This law
the volume of community projects that are ready
enhances transparency, ensuring buyers understand
for implementation, engineering and construc- potential risks before purchasing. Many buyers over-
tion firms will need a larger skilled workforce. look flood risk, so this measure helps them make more
Apprenticeship programs and higher education informed decisions and know when to take proactive
steps to avoid future loses.
intuitions can help meet these demands.

30 STATE OF M AINE
A stream crossing on Route 2 near New Sharon was improved in 2023 and survived the flooding that
December. Credit: Maine DOT

“About 10 years ago we decided to change our state culvert standards

from a 25-year storm to a 100-year storm sizing. It was controversial at
the time. However, today we can look back and say we have not lost a
single culvert that has been upgraded to the new standards.”
—JOYCE TAYLOR, MAINE DOT CHIEF ENGINEER

I nfrastructure Rebuilding and Resilience Commission 31

 Strategy Implementation Table I. 1
Lead (and
Activity Timeframe Status Resources
partners)

Assess the vulnerability of 0-2 years All state In progress, Existing

state-owned assets to climate agencies with assessment FEMA
change hazards and extreme GOPIF and began in Hazard
weather. Develop vulnerability State Resilience March 2025 Mitigation
assessment protocols, Office Assistance
resources, training, and grant
assistance for communities
to enable assessments at the
community or regional levels.

Develop a prioritization 0-2 years GOPIF Existing

framework and appropriate (with State FEMA
metrics for investments within Resilience Hazard
categories of vulnerable Office and Mitigation
infrastructure using the Governor’s Assistance
following criteria: protection Infrastructure grant
of life safety, preservation Implementation
of public health, prevention Committee)
of economic damages.
Emphasize community input
and leadership with support
and guidance from the state.

Develop a robust pipeline 0-2 years MOCA Existing

of local infrastructure Community NOAA
resilience projects by Resilience CRRC
providing planning, design, Partnership grant
and engineering assistance
to communities, thereby
generating a steady stream of
work for businesses.

Expand existing workforce 3-5 years Dept. of Labor

training programs, including (with University
apprenticeships and pre- of Maine
apprenticeships, service System, Maine
corps, and UMS’s internship Community
initiatives, with a focus on College
resilience-related fields such System, Career
as construction, engineering, and Technical
and community planning. Education
programs, and
Construction
Training
Programs)

Recruit more students into 6-10 years University

resilience-related fields such of Maine
as engineering and community System, Maine
planning. Community
College System
and Career
and Technical
Education
programs

32 STATE OF M AINE
 economic development, housing, public transpor-
tation, and community resilience, and other issues.
Funding from Maine’s NOAA grant has expanded
upon a two-year pilot project to include all 10 of the
regional councils for an additional five years. Staff at
each regional council are now assisting communities to
identify resilience priorities and develop project fund-
ing proposals. Building on this model, the Flood Ready
Maine initiative created by LD 1 will fund a certified
floodplain manager position in each of the 10 regional
councils, growing the capacity and expertise available
to communities to reduce risks.
2. Assist communities to effectively assess
and reduce risk.
Philanthropy and the nonprofit sector should be a key
With nearly 100 communities across Maine already part of long-term resilience building in Maine. There
assessing the vulnerability of their own assets, resources, is a need for capacity building in rural communities
and community members, now is the time for the state and regions and for education and community engage-
to increase the quantity and sophistication of tools and ment in all parts of the state. Philanthropic entities
services to help communities build on their momen- that have established relationships with community
tum. Over the next several months, the State Resilience organizations are ideally situated to develop and tai-
Office at the Maine Office of Community Affairs will lor programming to meet local and regional needs for
begin to coordinate new and existing activities to assist information, dialogue, and implementation. Pilot proj-
communities. The office will develop additional tools ects are one way philanthropy can encourage innova-
and technical assistance to assess and communicate tion, test new approaches to engagement and capacity,
about risks. Maine DOT is currently developing a and scale up successful models. Philanthropy also plays
Maine Coastal Flood Risk Model that will provide an important role in land conservation, a role that can
maps for sea-level rise scenarios and coastal storm flood be expanded to include voluntary land acquisition for
risks. The State Resilience Office and Maine DOT will storm and flood risk reduction and habitat benefits.
develop a user’s guide to help different audiences under-
stand and utilize information from the model. LD 1’s
Flood Ready Maine initiative and activities under the
Capacity building: The effort and process of
NOAA resilience grant will assess needs for inland adding resources that enhance an organiza-
flood risk information and tools, which will entail tion’s operations, skills, and functions. This
inland flood modeling and mapping, easy-to-under- can include new staff, volunteers, trainings,
stand user guides, and other tools that make flood risk guides, templates,
model ordinances,
information accessible for different audiences. a n d oth e r to o ls
that support ongo-
Crucially, Maine is expanding investments in regional
ing development (as
capacity to assist communities to set their own pri- opposed to a one-
orities and implement projects that meet local and time intervention).
regional needs. Maine has 10 regional councils that
assist community planning for growth management,

Infrastructure Rebuilding and Resilience Commission 33

 Maine Regional Councils

34 STATE OF M AINE
 Maine Office of Community Affairs:
A New One-Stop Shop for Communities
The Maine Office of Community Affairs (MOCA) is a new standalone state office that partners with Maine
communities to strengthen planning and implementation at the local level. It serves as a one-stop shop
within state government to provide coordinated and efficient planning, technical assistance, and financial
support to towns, cities, tribal governments and regional entities, to help them better plan for common
challenges, pursue solutions, and create stronger, more resilient communities.

Starting in July 2025, MOCA will reorganize seven existing state programs involving land use, housing
and flood plain planning, as well as building codes, coastal management, and climate resilience. Other
state programs that provide services to communities on these and other related topics will remain in other
agencies, with the Office ensuring increased coordination across agencies and program staff.

MOCA will also include a newly established State Resilience Office and staff, supported by the historic $69
million climate resilience grant awarded to Maine by the National Oceanic and Atmospheric Administration.
The staff of the reorganized programs and the State Resilience Office will work together to enable each
community to find the support services that are right for them.

An early project for the MOCA will be developing a single grant portal for communities to access multiple
state grant programs. Programs involving land use, housing and floodplain planning, as well as building
codes, coastal management, and some climate resilience funding and programs, will be reorganized into
the new Office starting in July 2025. This includes:

• Community Resilience Partnership, currently in the Governor’s Office of Policy Innovation and the
Future

• Maine Coastal Program, currently in the Department of Marine Resources

• Maine Floodplain Program, currently in the Department of Agriculture, Conservation and Forestry

• Municipal Planning Assistance Program, currently in the Department of Agriculture, Conservation

and Forestry

• Housing Opportunity Program, currently in the Department of Economic and Community

Development

• Maine Uniform Building and Energy Code/Code Enforcement, currently in the Office
of State Fire Marshal

• Volunteer Maine, an independent state office currently connected to

the Department of Education that leads to a stronger Maine through
volunteerism

• The State Resilience Office, a new office supported by the NOAA

resilience grant

MOCA Director
Samantha Horn

Infrastructure Rebuilding and Resilience Commission 35

 Action Plan for Communities
Across the state of Maine, communities are working to advance disaster preparedness and infrastructure
resilience at the local level. Below are a set of steps and resources communities can use to take action to
address vulnerabilities and invest in resiliency projects.

Community action steps:

1. Complete a Vulnerability Assessment to identify risk and needs, utilizing a Community Resilience
Partnership (CRP) grant.

2. Create or update a local capital investment plan to prioritize among resilience and other community
needs.

3. Establish a resilience reserve account to start saving for future resilience projects, local cost share for
grants, or unexpected storm damage.

4. Match mitigation and adaptation projects to funding and financing options with the help of a CRP
Regional Coordinator.

Resources for communities:

• Community Resilience Partnership (CRP) — Participation in the Community Resilience Partnership is

available to all municipalities, federally recognized tribes, and unorganized territories in Maine. The
benefits of joining the Partnership include access to funding opportunities, help with project
development and grant writing, trainings on important topics, and peer-to-peer learning events. The
Partnership offers grants and technical assistance for vulnerability assessments.

• CRP Regional Coordinators — The Regional Coordinator Program consists of a network of assistance
providers at each of Maine’s 10 regional councils who provide support to communities enrolled in
the Partnership. Examples of services include project development and management, technical
assistance, community engagement support, process guidance, and grant writing and management
services.

36 STATE OF M AINE
 Resilience in Action: Van Buren
“With FEMA’s assistance,
homeowners in vulnerable areas
volunteered to relocate to safer
ground, and the properties
were deeded to the town. These
former residential lots are
now being transformed into a
resilient community space. By
creating a public park with a
community garden and walking
path, we are not only revitalizing
the area but also enhancing
our town’s ability to adapt to
future challenges, promoting
environmental sustainability,
and fostering
community
cohesion.”
—LUKE DYER
VAN BUREN TOWN
MANAGER

Credit: Town of Van Buren

I nfrastructure Rebuilding and Resilience Commission 37

 Strategy Implementation Table I. 2
Lead (and
Activity Timeframe Status Resources
partners)
Expand tools and funding 0-2 years MOCA State Community Existing FEMA
for communities and regions Resilience Resilience BRIC and NOAA
to assess vulnerabilities in Office and Partnership CRRC grants;
infrastructure, including culverts Community added Community
and stormwater assets, drinking Resilience technical Resilience
water and wastewater systems, Partnership, assistance for Partnership
transportation, communications, with DACF, vulnerability grants
and other public and private DOT MIAF, assessments
facilities that are essential to local and other in 2024.
economies. agencies
Increase state and regional 0-2 years MOCA LD 1 creates LD 1 authorizes
capacity to assist communities with the Flood Ready funding
with flood and natural hazard risk 10 regional Maine
reduction, prioritizing communities councils initiative and
that are rural and vulnerable to funds regional
natural disasters. certified
floodplain
managers
Encourage philanthropies and 0-2 years Maine
nonprofit organizations to support Community
capacity-building, pilots, and Foundation
community engagement and (with
education for resiliency. philanthropies
and
nonprofits)
Develop a sustained public 0-2 years MOCA State Existing NOAA
communications strategy to raise Resilience CRRC grant
awareness, engagement, and Office
support community dialogue about with other
resilience efforts and long-term agencies
challenges.
Establish a homeowners resilience 0-2 years DPFR Bureau LD 1 creates LD 1 authorizes
program to provide grants to of Insurance the Home funding
residents to strengthen their Resiliency
homes against damage and loss Program
from severe weather.
Assist towns to take actions 0-2 years MOCA State LD 1 creates LD 1 authorizes
that reduce flood risk, protect Resilience Flood Ready funding
property, increase participation Office and Maine
in the National Flood Insurance Floodplain initiative
Program, and lower flood insurance Management
premiums. Program
Assist towns to establish resilience 3-5 years MOCA Community
reserve accounts and capital Community Resilience
investment plans. Resilience Partnership
Partnership grants
Provide data and education 3-5 years MOCA
for communities to establish
“resiliency overlay districts” using
the best available science and
data to reduce risk in areas where
additional protective measures are
needed.
Incentivize communities to take 6-10 years MOCA Community
regional or watershed approaches Resilience
to planning, prioritization and Partnership
investment in risk reduction and grants
resilient infrastructure.

38 STATE OF M AINE
 Energy Office will facilitate relevant partners to explore
the feasibility of utilizing higher resolution data to sup-
port a power outage summary dashboard that offers
the public greater transparency into reliability metrics
and outage trends over time. The map and dashboard
will enable further community engagement and energy
resilience planning. Colorado’s Critical Infrastructure
and Facility Prioritization Process is an example of this
inventory, prioritization, and outreach.

Maine will accelerate the adoption and deployment of

clean energy technologies that can provide resilience to
energy customers. In a state with some of the most fre-
3. Improve and protect energy infrastructure quent electricity outages, battery storage is a technology
and increase energy resilience for
with significant benefits for energy resilience. Batteries
customers.
that store enough energy for a few hours of use can
Electricity outages are one of the most common and
help prevent some of the basic nuisances of power out-
disruptive storm impacts to people and businesses in
ages while potentially participating in demand man-
Maine. As a rural and heavily forested state, two sig-
agement initiatives. Combining battery storage with
nificant challenges for the electric grid are long elec-
on-site solar or wind generation can extend the resil-
tricity distribution lines to communities and a high
ience benefit substantially. Microgrids can help critical
probability of tree damage during wind or ice storms.
facilities like hospitals, shelters, warming and cooling
In 2024, over 50 percent of outage hours were the result
centers, and emergency operations centers maintain a
of tree damage both in and out of utility rights-of-way.
high level of functionality during extended power out-
As Maine transitions toward a clean energy economy
ages, improving safety and services for residents who
and electrifies more energy uses, making the grid more
might be at greater risk during power outages. The fed-
reliable and customers more energy resilient must be a
erally funded Maine Grid Resilience Grant Program
priority.
provides implementation funding for eligible grid resil-
The actions below build upon work that is already ience activities, including microgrid deployment. In
in progress. The Governor’s Energy Office (GEO) is 2024, the Governor’s Energy Office announced the
implementing the Maine Energy Plan and the State first round of awards under the program, including a
Energy Security Plan, while the Maine Public Utilities community microgrid project. Funding for electric grid
Commission (PUC), is overseeing 10-year Integrated infrastructure improvements will be a continued focus,
Grid Plans and Climate Change Protection Plans considering both ratepayer-funded options as well as
that Maine’s investor-owned utilities are developing alternative funding sources. Education about the ben-
as required by law, as well as an inquiry into improving efits of community microgrids can expand interest and
resiliency and addressing rising storm costs. opportunities for deployment.

The Governor’s Energy Office, in collaboration with The state will continue to collaborate with regional
the Public Utilities Commission, utilities, and Maine partners and regulators to ensure reliable electricity
Emergency Management Agency will improve access generation supply during winter months. As long as the
to information about outage impacts by developing New England grid is reliant on natural gas for generat-
an initial critical facility map that includes available ing electricity, Maine will continue to be subject to vol-
energy resilience-related information. The Governor’s atile global natural gas markets that can adversely affect

Infrastructure Rebuilding and Resilience Commission 39

 energy prices and availability. The availability
of natural gas for electricity generation can State Spotlight: Colorado
fluctuate during the winter months when The State of Colorado’s Microgrids for Resilience Program
demand rises for heating homes. During pro- provides planning and construction grants for projects
at critical facilities and community centers in vulnerable
longed cold periods, natural gas availability
areas. Microgrid technology that employs on-site
for generation can be limited, causing prices batteries and solar generation can help critical facilities
to increase and the region to rely more upon like hospitals, shelters, and emergency operations centers
generation facilities that utilize other fuels maintain a high level of functionality during extended
such as oil. Home heating fuels (oil, pro- power outages.

pane, and kerosene) face similar global and

regional volatility issues, and deliveries can
be constrained during extended periods of
very cold weather and winter storms. Road
closures due to culvert washouts or fallen
trees can prevent fuel deliveries at critical
times for residents. Multiple state agencies
and fuel delivery companies are focused on
this issue, including the Governor’s Energy
Office, MEMA, Maine DOT, and Efficiency
Maine Trust.

Strategy Implementation Table I. 3

Lead (and
Activity Timeframe Status Resources
partners)

Facilitate the collection and 0-2 years GEO Aligned

publication of trend data on (with PUC, with Maine
electricity outages and grid MEMA, and Energy Plan
vulnerabilities. utilities) Objective B,
Strategy A

Monitor energy reliability, 0-2 years GEO Aligned

volatility, and costs for electricity (with with Maine
generation and delivery of fuels regional Energy Plan,
for home heating during extreme industry Objective B,
cold periods and winter storms. partners) Strategy A
Continue to address through the
advancement of the Maine Energy
Plan and other efforts.

Develop an initial critical facility 3-5 years GEO

map using available energy (with PUC
resilience-related information. and utilities)

Enable the adoption of clean 3-5 years GEO

energy powered microgrids (with PUC
that enhance storm resilience, and utilities)
especially for critical services and
facilities that serve vulnerable
populations.

40 STATE OF M AINE
4. Protect and promote resilience across a diverse mix of public and privately owned working
waterfront infrastructure.
Maine’s coastal communities, working waterfronts, fisheries, and aquaculture businesses are directly impacted by
intense storms, sea-level rise, storm surge, and the rapidly changing Gulf of Maine ecosystem. Maine’s working water-
fronts are vital to the state, both economically and culturally, and access to the ocean is crucial to Maine’s identity and
future blue economy.

To continue Maine’s long history of a diverse working waterfront along the coastline, Maine needs to implement local
and regional approaches that protect and support a mix of public and privately owned working waterfront infrastruc-
ture, in part by developing tools and support for all types of working waterfront infrastructure. To maintain public
working waterfront infrastructure as the long-term backbone for commercial fisheries and other blue economy sectors
in Maine, Maine should invest in resilience upgrades and ongoing maintenance to withstand future sea level rise and
extreme storms. To support privately owned working waterfront infrastructure, Maine should invest in providing
support services, including technical assistance to complete resiliency upgrades, engineering and permitting support,
and business planning support for future generations enabling strong working waterfront businesses and helping avoid
the need for rapid crisis response.

To inform these efforts, Maine needs a systematic method to compile inventory data across all types of working
waterfront infrastructure. A rapid inventory should take into consideration economically vital working waterfronts,
working waterfronts that support socially vulnerable populations, and working waterfronts that form a base for the
future of fisheries. This work can build on existing knowledge from nonprofits and academic researchers as well as
local efforts like the Downeast Conservation Network and existing knowledge of working waterfront stakeholders.
Local knowledge should ground truth and validate the most vulnerable working waterfronts.

Strategy Implementation Table I. 4

Activity Timeframe Lead (and partners) Resources
Identify and map the most vulnerable 0-2 years DMR/MOCA Maine
working waterfront infrastructure through Coastal Program (with
a systematic, statewide approach, working waterfront
considering economically vital facilities, stakeholders)
social vulnerability, and future growth
opportunities. Ground truth vulnerability
data with local knowledge from
harbormasters and town staff.

Invest in resilience upgrades and ongoing 0-2 years DMR and DOT Existing NOAA
maintenance of public working waterfront CRRC grant
infrastructure to withstand sea level rise and NOAA CDS
and extreme storms. funds

Strengthen privately owned working 0-2 years MOCA/DMR Maine NOAA CDS
waterfront infrastructure by providing Coastal Program (with funds
business resiliency planning support and DMR, DECD, DEP
engineering and permit assistance to
design and complete resilience upgrades.

Create new policy options, funding, 3-5 years MOCA/DMR Maine

and technical assistance, such as an Coastal Program
entity outside of state government with (with DMR, Land for
the capacity to protect critical private Maine’s Future, and
working waterfront properties at risk of working waterfront
conversion to non-marine uses. stakeholders and
the philanthropy
community)

Infrastructure Rebuilding and Resilience Commission 41

 Challenges of Inventorying Working Waterfront
Vulnerabilities along the Maine Coast
Inventorying working waterfronts along Maine’s coast- provide a clearer view of working waterfront vulnera-
line is an important step in identifying vulnerabili- bilities in Washington County. To inventory intertidal
ties, and prioritizing funding for resiliency measures, access, primarily for the clam fishery, the Downeast
but faces many challenges. Maine’s diverse array of Conservation Network with the Maine Coast Heritage
working waterfronts is composed of both public and Trust and Sunrise County Economic Council led a map-
privately owned properties. Town officials such as har- ping exercise that was attended by shellfish harvest-
bor masters, town managers, and selectmen, many of ers, constables and committee members, in addition
which are volunteers, have limited capacity to contrib- to local land trusts representatives. The challenge
ute data to inventorying public working waterfronts. moving forward is how to complete and then steward
To complete vulnerability inventories of private work- this inventory, and how to create a source of funding
ing waterfront, the sensitivity of private wharf data and technical assistance that allows rapid response
is a barrier. It is difficult to reach people, build trust, when opportunities arise to secure long-term intertidal
and receive information about precious shore access access for shellfish industry.
arrangements, especially where they involve private Other recent inventory efforts led by organizations
handshake agreements and concerns about local con- in the Working Waterfront Coalition provide import-
flict or liability issues. In addition, following the devas- ant datapoints — ­ such as state inventory of public
tating January 2024 storms, many working waterfront boat access held by the Maine Coastal Program, prop-
communities were overwhelmed and in recovery mode erties identified through the Department of Marine
and had limited bandwidth to participate in inventory- Resources’ Working Waterfront Access Protection
ing and assessments. In addition, much of the repair, Program in collaboration with Land for Maine’s Future,
recovery and maintenance work was happening with efforts to assess working waterfronts of social and
volunteer labor, and often, with out-of-pocket funds, cultural importance based on where fishing license
making tracking difficult. holders are selling product out of, and resources such
Given the lack of an updated, comprehensive inven- as the Maine Coast Fishermen’s Association Working
tory of Maine’s working waterfront, and differences Waterfront Inventory template. However, a statewide,
between public and private working waterfront infra- systematic approach would guide the state in investing
structure (and the distinct importance of each), one of in services critical to support private working water-
the main challenges the state faces is not knowing the front, and resiliency upgrades to maintain public work-
scale of working waterfront vulnerability or how to ing waterfront services along the coast for commercial
characterize the data. There is a need for a systematic fishermen and aquaculturists.
approach to data compilation.
In 2006, the Island Institute completed a coast-wide
working waterfront inventory that found that working
waterfront takes up only 20 miles Maine’s extensive
coastline. An updated, statewide comprehensive inven-
tory is needed for Maine to effectively prioritize work-
ing waterfront protection efforts. Recently, the Sunrise
County Economic Council updated the Washington
County portion of the 2006 “Last 20 Miles Inventory”
after the January 2024 storms, focusing primarily on
public infrastructure, by requesting reports of storm
damage to infrastructure from communities and reach-
ing out by phone and email to community leaders and
harbormasters. The inventory, though not compre-
hensive, and facing many of the inventorying chal-
lenges cited above — such as limited response from
overwhelmed communities, and only select data on
important privately held working waterfront — helps

42 STATE OF M AINE
Understanding Working Waterfront Resiliency Funding Needs
Data and survey responses from recent efforts to like planks and pilings, hiring labor to rebuild wharves,
understand working waterfront resiliency fund- and cleaning up debris, with most recipients using the
ing needs indicate that a large proportion of work- funds to complete the repair work themselves, as is
ing waterfront sites have either damage from recent an enduring tradition among fishermen. The Island
storms or deferred maintenance problems that threaten Institute also distributed grants ranging from $2,500
the future of the infrastructure’s resilience. Following to $10,000 to 50 awardees for storm related needs to
the January 2024 storms, public and private work- commercial wharves, co-op wharves, family fishing
ing waterfronts that sustained damage needed finan- wharves, boat yards, and aquaculture operations.
cial support. The state’s one-time Working Waterfront
The rebuilding needs from these recent storms can
Resiliency Grant awarded nearly $23 million in grants
help inform priorities for future funding: though each
to reconstruct and improve damaged wharves and
piers that supported 10 or more commercial fisher- working waterfront property has unique challenges,
men. To support smaller, privately owned properties funding to complete engineering and permitting design
rebuild — most of whom had infrastructure that was and pay for materials and construction costs to improve
not covered by flood insurance and limited options to the resilience of infrastructure is needed for both public
secure affordable loan funding — both the Maine Coast and private working waterfronts. In addition, for many
Fishermen’s Association and Island Institute provided properties, there is no external source of funding for
grants for rebuilding. The Maine Coast Fishermen’s repairs and resilience upgrades. Match requirements
Association distributed $5,000 grants to 45 proper- for grants are a significant barrier to obtain funding
ties through their Working Waterfront Fund for critical for many property owners, especially smaller
repairs. These funds helped cover the cost of materials family-owned properties.

Infrastructure Rebuilding and Resilience Commission 43

 II. Improve Disaster Preparedness, Response, and Rebuilding

5. Enhance communications during and immediately after emergencies.

Effective communication of timely and accurate information before, during, and following emergencies is both
critical and challenging. During recent disasters, numerous communities relied on social media platforms to
communicate with residents due to the absence of reliable alternatives. To address this issue, communities like
Dover-Foxcroft are implementing subscriber-based mobile phone notification systems that allow users to receive
text messages or emails with important information. These notifications are limited to individuals who opt in
to the service, so a robust public education effort is required to onboard residents.

With investment from LD 1, MEMA will expand the availability of the Integrated Public Alert and Warning
System (IPAWS). Unlike subscription-based systems, IPAWS allows for universal dissemination of Wireless
Emergency Alerts, which are sent by cellular carriers to all mobile phones within a designated area without
requiring prior user registration. MEMA will expand the number of public officials trained and authorized to
issue alerts; add more languages to the service to reach more populations in Maine; and enhance the targeting
of alerts to affected areas without alerting those outside the area with non-relevant information. These improve-
ments will ensure the right audience receives the right information at the right time.

Technology alone will not solve all of the challenges of emergency communications. There is a need to improve
the effectiveness of communicators and their messages, broaden and strengthen communication networks to
reach difficult-to-contact populations, and prepare information receivers to know what actions to take when
emergency notices are posted. MEMA will improve information sharing across different levels of government
by building relationships with partners who can help tailor messages and delivery for certain audiences. This
is especially important for difficult-to-reach populations such as people in remote places without phones and
people for whom English is not a first language.

44 STATE OF M AINE
 Strategy Implementation Table II. 5
Lead (and
Activity Timeframe Status Resources
partners)

Upgrade emergency 0-2 years MEMA LD 1 provides

communication systems, funding and
practices, and training for staffing
state, county, and municipal
leaders to ensure dependable
communication with residents
during emergencies.

Develop strategies to streamline 0-2 years MEMA LD 1 provides

and improve information sharing funding and
among state, county, and local staffing
emergency managers and
officials.

Develop and strengthen 3-5 years MOCA

relationships with vulnerable (with
communities to ensure that all MEMA and
Maine people can quickly access the Office
trusted sources of emergency of New
communications and disaster Americans)
response.

The Town of Dover-Foxcroft is implementing a subscriber-based cell-phone notification system that

allows users to receive text messages or emails with important information. American Woolen Company
Foxcroft Mill, Dover-Foxcroft, Maine. Credit: Jack Clukey

Infrastructure Rebuilding and Resilience Commission 45

 6. Strengthen emergency coordination Association, in cooperation with many organizations
and rapid reaction capabilities across across the philanthropic community, also made small
governments and with the philanthropic
grants to privately owned fishing businesses for recov-
and nonprofit sector to alleviate
immediate post-disaster needs. ery activities. MEMA and the Maine Community
Foundation will work with the nonprofit and philan-
The demand for services and resources climbs dramati-
thropy sector to plan and coordinate disaster relief
cally in the aftermath of a disaster. MEMA, along with
activities closely with the state via the Emergency
county and local partners, work quickly to identify the
Operations Center and the Maine Long-Term
immediate needs of individuals, businesses, and local
Recovery Board.
governments. As state agencies follow established pro-
cedures to request federal disaster relief resources, there
is an opportunity to strengthen the role of non-gov-
ernmental organizations that specialize in providing
immediate relief needs, such as meals, cleanup services,
and shelter.

The Island Institute, for example, quickly made small

grants available for working waterfront businesses
to stabilize and repair damaged wharves and water-
front buildings in the immediate aftermath of the
January coastal storms. The Maine Coast Fishermen’s

Strategy Implementation Table II. 6

Lead (and
Activity Timeframe Status Resources
partners)

Develop and coordinate 0-2 years MEMA

opportunities for the (with the
philanthropic and nonprofit Maine Long
sector to help fill needs not being Term Recovery
met by disaster relief programs. Board and
philanthropy
community)

Increase engagement and 3-5 years MEMA

education among county (with
and municipal officials, the Volunteer
philanthropic and nonprofit Maine, Maine
sector, and donors about the Community
mechanisms for requesting Foundation,
and providing disaster relief and other
assistance. donors)

Increase funding for emergency 3-5 years State, county,

management staffing at state, and local
county, and local levels. governments.

Assist communities to formalize 3-5 years MEMA

networks and contracts for (with county
disaster recovery services (e.g., emergency
debris management, construction management
contractors). agencies)

46 STATE OF M AINE
7. Expedite permitting for post-disaster The DEP will suggest to the Legislature additional
rebuilding, infrastructure strengthening, statutory exemptions, with environmental safeguards,
and resilience projects.
for certain emergency work during and immediately
The urgency to rebuild hundreds of damaged build-
following disasters. The DEP will convene a regula-
ings, facilities, and infrastructure can strain regulatory
tory reform forum to identify potential changes to
agencies that have a statutory responsibility to review
Department regulations to facilitate climate resil-
activities taking place in or adjacent to protected nat-
ience, informed by outreach to affected stakeholders,
ural resources. Agencies expended enormous effort
including the private sector. The DEP will collaborate
after the December and January storms to review per-
with other state agencies to create educational materi-
mit applications with speed and urgency, prioritizing
als to raise awareness of permitting requirements and
applications for rebuilding projects, but were limited
about the types of disaster response and recovery activ-
by staff capacity. Additionally, state and federal permit
ities that are exempt from permitting or eligible for an
requirements can increase project costs and lengthen
expedited permit-by-rule. This can help get answers to
timelines for property owners and construction firms.
the public quickly and ensure that applicants have the
For example, work windows intended to protect envi-
information they need to submit the appropriate appli-
ronmentally sensitive areas can also compress construc-
cation. Furthermore, state agencies will coordinate
tion schedules and shift activities to times of the year
federal engagement concerning revisions to the Army
with less favorable weather, increasing project costs.
Corps of Engineers’ General Permit for Maine, seeking
To prepare for the next disaster, the Department of to reduce in-water work restrictions, duplicative permit
Environmental Protection (DEP) has developed a process, and review timelines.
Willing & Qualified Vendor Agreement that allows
the department to utilize private-sector vendors to
review license applications. As of early 2025, 13 ven-
dors have agreed to participate. Additional vendors can
be added when necessary. The DEP is currently utiliz-
ing these vendors to process a backlog of coastal permit
applications following the January 2024 storm events
and the overall higher volume of applications associ-
ated with increased clean energy development and eco-
nomic activity in the state. In the future, vendors will
be utilized on an as-needed basis when there are similar
surges in license applications that the department does
not have adequate staff capacity to process.

The DEP, in coordination with other agencies, will

propose to the Board of Environmental Protection
expansions in the types of projects that are eligible for
the permit-by-rule process, such as making wharves
and piers more resilient. Permit-by-rule is a streamlined
approval for an activity that requires a permit under the
Natural Resources Protection Act when the activity is Maine Department of Environmental Protection storm
remediation responders work to clean up an oil spill
carried out in certain locations and in accordance with inside a basement in Bingham, Maine following the
specific standards to minimize environmental impact. historic storms of 2024. Credit: Maine DEP

Infrastructure Rebuilding and Resilience Commission 47

 Strategy Implementation Table II. 7
Lead (and
Activity Timeframe Status Resources
partners)

Develop temporary contracts at 0-2 years DEP (with Feb 2025:

state agencies to increase capacity other permit- DEP has 13
for permit application review review willing and
during periods of high demand. agencies) qualified
vendors to
assist

Develop a list of suggested 0-2 years DEP Expand on

regulatory exemptions with (with other LD2030
appropriate environmental agencies) (2024)
safeguards for emergency
activities during and immediately
following a disaster.

Convene a regulatory reform 0-2 years DEP Existing

forum to identify potential changes (with other NOAA
to Department regulations to agencies) CRRC
facilitate climate resilience, grant
informed by outreach to affected
stakeholders, including the private
sector.

Engage federal agencies (such as 0-2 years DEP and

the Army Corps of Engineers and GOPIF
NOAA Fisheries) about permitting (with other
improvements such as restrictive agencies)
in-water work windows, duplicative
state and federal permits, and
lengthy agency review times.

Create educational materials to 0-2 years DEP Existing

raise awareness of permitting (with MOCA) NOAA
requirements, explain eligibility for CRRC
expedited state permitting through grant
permit-by-rule, and provide and new
guidance for emergency rebuilding positions
work. requested
in budget

Propose expanded uses of permit- 3-5 years DEP

by-rule and include additional
resilience-related practices (e.g.,
making wharves and piers more
resilient).

48 STATE OF M AINE
 Maine Department of Environmental Protection
Supporting Resilience through Streamlined Permitting
The Maine Department of Environmental Protection (DEP) safeguards Maine’s natural resources by working to pre-
serve and enhance the environment while ensuring public access and enjoyment. The Natural Resources Protection Act
(NRPA) was enacted by the Legislature to protect the State’s natural resources such as coastal and freshwater wetlands,
coastal sand dune systems, lakes, significant wildlife habitats, fragile mountain areas, and rivers, streams and brooks.

In 2024, the DEP introduced emergency legislation in response to the multiple storm events of December 2023 and
January 2024. The Legislature passed the bill (L.D. 2030) into law, amending NRPA to allow for faster rebuilding of
more resilient piers, wharves, and docks; to reduce permitting requirements for property owners seeking to elevate
their building foundations; and to exempt emergency flood alleviation activities from NRPA permitting in the future
when necessary for public safety.

The DEP recently enacted improvements to permitting processes and proposed additional changes to reduce review
time for applications, better address individual and cumulative impacts, encourage nature-based solutions, and update
rules for consistency with other measures and best practices:

• Created the Maine Enterprise Licensing System (MELS) to increase the transparency of the permitting
process, improve the ease of permit-by-rule with online submissions, and allow the public to view all pending
applications.

• Developed a Willing & Qualified Vendor Agreement that allows the DEP to utilize private-sector vendors to
review license applications and reduce any backlog during surges in applications through outsourced support
when staff capacity is limited.

• Expanding options for the use of Permit-by-Rule (PBR) including proposing to make coastal shoreline
stabilization projects eligible under the Department’s Chapter 305 NRPA PBR rules.

• Clarifying standards for resource protection through proposed updates to the Department’s Chapter 310
Wetlands and Waterbodies Protection rules.

• Incorporated the best available science on the location of coastal sand dune systems into the Department’s
Chapter 355 Coastal Sand Dune Rules.

The following proposed changes to Chapter 305: Natural Resources Protection Act — Permit by Rule Standards and
Chapter 310: Wetlands and Waterbodies Protection include standards related to coastal shoreline stabilization intended
to increase resilience and protect essential ecosystems:

• Allow some projects using riprap or biodegradable stabilization materials to be eligible for PBR. (Ch. 305)

• Reduce restrictions on biodegradable materials for coastal sand dune restoration. (Ch. 305)

• Increase seawall heights up to base flood elevation under PBR (except in coastal sand dune systems). (Ch.305)

• Add beach scraping as a PBR-eligible activity. (Ch. 305)

• Set standards and limits on structural stabilization projects that require an individual permit, to increase
predictability for applicants and to ensure impacts are reasonable. (Ch. 310)

• Limit use of riprap and hard armoring when not protecting structures or infrastructure. (Ch. 310)

Maine DEP has convened a Steering Committee and Technical Committee to work together to
develop a consensus-based framework for improving the State’s stormwater regulations, spe-
cifically Chapter 500, considering the State’s environmental protection and climate adaptation
goals. Newly proposed rules will likely require additional stormwater treatment in newly iden-
tified sensitive and threatened watersheds, tailor treatment to the stressors in the watershed,
and require less treatment for low-impact development in watersheds that do not face signifi-
cant development pressure.

I nfrastructure Rebuilding and Resilience Commission 49

 8. Develop tools and education to make There are numerous examples around the country of
buildings more resilient. homes or communities that were designed and built
Building codes are regulations used to establish min- to the latest building codes that not only survived a
imum safety requirements for the construction of significant natural disaster but were able to continue
new buildings and retrofits to existing buildings. The their intended function, helping the occupants or com-
Maine Uniform Building and Energy Code (MUBEC) munity quickly recover and remain resilient. A 2019
applies to all towns in the state. MUBEC is com- study by the National Institute of Building Sciences
prised of several sets of international codes, includ- found that communities save $11 for every $1 invested
ing the International Building Code (IBC) and the in adopting the latest building codes. These cost savings
International Residential Code (IRC), that are in use in come from lower property damage, reduced insurance
all 50 states. The IBC and IRC are updated every three premiums, and fewer emergency response incidents.
years. Maine has adopted the 2021 international codes Stronger building codes will also help reduce insurance
and as of April 7, 2025, municipalities must comply premiums for residents.
with the codes and corresponding standards (although The state will continue to look for opportunities to
only communities with populations greater than 4,000 promote and incentivize “beyond-code” interven-
are required to enforce the codes). MUBEC staff are tions that enhance a structure’s overall resilience to
scheduled to join the new Maine Office of Community wind and flood damage from storms, floods, and other
Affairs in 2025, leveraging opportunities to provide severe weather events. The new Maine Home Resilience
assistance and training to towns in coordination with Grant program created by LD 1 incentivizes home-
other land use and resilience programs. owners to upgrade their roof to the FORTIFIED
Homes standard developed by the Insurance Institute

Avesta’s Bayside Anchor Apartments in Portland were built to meet the PHIUS+ Passive House standard,
which significantly reduces energy use and lowers heating costs for residents. Credit: Avesta Housing

50 STATE OF M AINE
for Business & Home Safety (IBHS). The American share inspectors. Code enforcement is often combined
Society of Civil Engineers’ newest building standards with administrative tasks, inspections, plan review, and
for structures located in floodplains, ASCE 24-24, is training to keep up with evolving construction tech-
an opportunity to proactively update municipal flood- nologies and updated standards. MEMA, MUBEC,
plain ordinances beyond the minimum requirements and the Kennebec Valley Council of Governments
of the National Flood Insurance Program. partnered to propose a pilot program for regional code
enforcement that would expand enforcement services
A barrier to advancing resilient codes across the state is
across several counties. The state should continue to
ensuring there is adequate staff, training, and commu-
seek opportunities to fund this proposal and other
nication materials to enforce building codes and code
opportunities for regional collaboration, capacity
updates. Some towns in Maine do not have a code offi-
building, and continuing education.
cer or licensed building inspector, while other towns

Strategy Implementation Table II. 8

Lead (and
Activity Timeframe Status Resources
partners)
Review state building codes for 0-2 years MOCA
opportunities to increase resilience Building
and protect structures from storm Codes
and flood damage. program

Develop model ordinances, resilient 3-5 years MOCA

building codes, and higher standards Building
and assist municipal adoption to Codes and
help communities reduce risks from Floodplain
flooding and other natural hazards. programs
For example, consider the benefits (with other
and costs of incorporating relevant agencies)
sections of the ASCE 24-24 Flood
Resistant Design and Standards
in the state’s model floodplain
ordinance.

Implement regional code 3-5 years MOCA

enforcement programs with Building
awareness of how codes and Codes
enforcement needs vary by region. program
(with MEMA)

Assist local permitters, inspectors, 3-5 years MOCA

and code enforcement officers Building
to be knowledgeable resources Codes
for property owners to access program
information and assistance, not only (with
enforcement. community
• Grow continuing education colleges)
offerings at community colleges
and mentoring opportunities
that support new code
enforcement officers.
• Broaden training opportunities
for code enforcement officers
with emphasis on resilience-
related resources for property
owners and intersections with
permitting.

Infrastructure Rebuilding and Resilience Commission 51

 III. Sustain Maine’s Momentum through Strategic Investments

9. Improve data and information sharing owners and prospective buyers to look up the flood risk
to help leaders make informed decisions
of their property. This platform will be a critical source
about risk.
of information for compliance with Maine’s 2024 Real
Reliable and accessible data is the foundation of risk
Estate Flood Risk Disclosure law (LD 2035).
management decisions. However, important data may
be fragmented and siloed at various agencies and insti- In the long-term, Maine should establish a robust
tutions across the state, lacking integration and analysis Center for Disaster Risk Analysis with a mission to
that could enable better decision making. Furthermore, deliver high quality disaster risk information to diverse
under-resourced communities frequently lack the tech- users and decision makers. The center could be estab-
nical capacity to analyze existing data in ways that lished in partnership with universities in Maine, with
could advance their resilience goals. staff to coordinate information gathering, analysis, and
communication as well as research and education. The
The Flood Ready Maine initiative established by LD
center would collaborate with state agencies on activ-
1 at the State Resilience Office will make flood data
ities such as supporting community-based programs
more accessible through an online risk data hub. The
to improve flood monitoring and prediction, inform-
hub will gather, curate, store, analyze, and make criti-
ing early warning systems, documenting and retain-
cal datasets available to communities and users across
ing information about disasters for future analysis,
the state. The initiative will assess community infor-
and assisting the development of a skilled workforce
mation needs and barriers, then develop easy-to-un-
for research, floodplain management, and resilience
derstand maps, visualizations, decision-support tools,
planning. Public engagement by the center should help
and communication aids. The Flood Ready Maine ini-
residents and community leaders understand strategies
tiative and the state’s NOAA grant include funding for
for preparedness, mitigation, and resilience. Similar
the development of inland hydrologic models and the
centers in other states include the Iowa Flood Center at
modernization of outdated community flood maps.
the University of Iowa and the Institute for a Disaster
LD 1 also includes funding for the development of an
Resilient Texas at Texas A&M University.
online flood risk communication platform similar to
Texas’s BuyersAware.org website that enables property

Flood Risk Disclosure Law

In April 2024, the Maine Legislature passed a
flood disclosure law requiring real estate sell-
ers to provide buyers with flood risk informa-
tion. Sellers must disclose if a property is in a
FEMA-designated flood hazard area, any past
flood events, active flood insurance costs, and
prior flood-related claims or disaster aid. This
law enhances transparency, ensuring buyers
understand potential risks before purchasing.
Many buyers overlook flood risk, so this mea-
sure helps them make more informed decisions
and know when to take proactive steps to avoid
future loses.

52 STATE OF M AINE
 State Spotlight: Iowa
The Iowa Flood Center is the nation’s only academic research
center devoted solely to flooding. The Center develops
tools and reliable information to help community leaders,
homeowners, and businesses make better flood-related
decisions. The Center’s work is accessible to everyone
through the online Iowa Flood Information System, which
communicates real-time information about stream levels,
flood alerts and forecasts, and hydrologic conditions for the
entire state.

Strategy Implementation Table III. 9

Lead (and
Activity Timeframe Status Resources
partners)

Launch an Online Risk Data 0-2 years MOCA State LD 1 provides

Hub that centralizes existing Resilience Office funding and
information and maps on (with MEMA, staffing
natural hazards and climate GEO, and other
risks, enabling communities agencies)
and other users to assess
vulnerability.

Develop accessible products 0-2 years MOCA State Existing

and tools for communities Resilience Office NOAA CRRC
based on coastal and inland (with DOT, grant
flood risk models. DACF, MEMA)

Analyze flood insurance data 0-2 years MOCA State LD 1 provides

to develop a more accurate Resilience Office funding
assessment of flood risk.

Establish a statewide 0-2 years MOCA State LD 1 provides

communication and public Resilience Office funding
information program (similar to
Texas’ BuyersAware website)
that informs local decision
makers and residents about the
risk from flooding and other
hazards, providing guidance on
how they can mitigate potential
adverse impacts.

Increase the number of river 6-10 years DACF Maine

and tide gauges to improve Geologic Survey
real-time access to water level
monitoring and predictions.

Establish a Center for Disaster 6-10 years Universities and

Risk Analysis in partnership philanthropy
with universities and community
philanthropy that will identify
critical data gaps, develop
new analytical capabilities,
and train a workforce skilled
in risk communication and
management.

Infrastructure Rebuilding and Resilience Commission 53

 10. Maximize federal funding for disaster and apply for state, federal, and philanthropic funds to
recovery and proactive resilience projects. implement the projects. Following disasters, commu-
Uncertainty about the future of federal funding pro- nities need additional capacity to manage the tasks and
grams and policies has grown since the Commission’s coordination required to access federal reimbursement
interim report was published. The state will continue for infrastructure repairs. Towns, regional councils,
to monitor the status of federal programs and pursue and the state should plan ahead for this capacity need
available funding opportunities that align with state in preparation for future disasters.
priorities. Maine currently has active resilience-related
grants from NOAA’s Climate Regional Resilience LD 1 establishes the state’s non-federal cost share
Challenge, the Department of Energy’s Grid Resilience needed for MEMA to apply for FEMA’s Safeguarding
and Innovation Partnership Program, FEMA’s Hazard Tomorrow Revolving Loan Fund program. These state
Mitigation Assistance grant programs, and other fed- and federal funds will capitalize a state revolving fund
eral programs. that makes low interest loans to municipal, county, and
tribal governments for hazard mitigation and infra-
As described above, the state’s NOAA grant expands structure resilience projects. With additional capi-
capacity through the Regional Resilience Collaborative talization and loan repayments, the fund becomes a
to help communities develop infrastructure resilience self-sustaining source of financing for expensive com-
projects. These regional coordinators are helping com- munity infrastructure improvements.
munities identify and develop project scopes, and find

Strategy Implementation Table III. 10

Lead (and
Activity Timeframe Status Resources
partners)

Assist communities through the 0-2 years MOCA Regional Existing

regional councils to navigate Community Resilience NOAA CRRC
complex federal grant programs. Resilience Collaborative grant
Partnership

Develop and launch the 0-2 years MEMA LD 1 provides

Safeguarding Tomorrow non-federal
Revolving Loan Fund to match and
support hazard mitigation and staffing
infrastructure resilience projects.

Adopt an enhanced State 3-5 years MEMA

Hazard Mitigation Plan to qualify (with other
for additional federal resilience agencies)
funding.

Develop and implement a 3-5 years MOCA State

funding plan that maintains Resilience Office
state, regional, and local (with Governor’s
capacity built with funds from Office and
Maine’s NOAA CRRC grant and agencies)
transitions successful grant-
funded activities to other
funding sources.

54 STATE OF M AINE
11. Develop long-term funding and financing
strategies for infrastructure resilience. State Spotlight: Rhode Island
Maine must begin with urgency to become more self-re-
The Rhode Island Infrastructure Bank is Rhode
liant in generating the financial resources required for Island’s central hub for financing infrastructure
hazard mitigation, disaster recovery, and resilience. improvements, including climate resilience, for
Increasingly costly storms and aging infrastructure cre- municipalities, businesses, and homeowners.
The Infrastructure Bank leverages limited capital
ate a pressing need to develop long-term funding and
in a revolving fund to offer financing for an array
financing strategies that sustain momentum and allow of infrastructure-based projects including water
Maine to address complex and expensive infrastruc- and wastewater, roads and bridges, and energy
ture vulnerabilities. Drinking water, wastewater, and efficiency and renewable energy.
stormwater infrastructure, along with transportation,
energy, communications, and broadband are some of
the most expensive systems to upgrade or relocate for
resilience and will benefit from robust funding and
financing strategies.

Both the state and communities must begin to think

implementation that leads to the development of a sus-
seriously about the benefits and tradeoffs of generating
tainable, long-term resilience financing strategy. The
new revenues, reserving funds for future needs, bor-
assessment will identify opportunities to 1) optimize
rowing for current needs, and insuring assets against
existing state funding and programs, especially in ways
future losses. State and local governments will need
that leverage larger federal funds where possible; 2) sug-
to consider two complementary aspects of financing
gest items that require a state budget strategy; and 3)
resilience: a banking function that connects capital
propose new funding sources beyond the state budget.
with resilience projects, and an insurance function that
The process will include a study to explore policy, regu-
provides property owners, including state and local
latory, and legislative options for execution of the strat-
government entities, with a pathway to recovery when
egy, including the potential for a centralized financing
there is a loss.
entity such as a resilience bank and the feasibility of an
The state will conduct a comprehensive assess- insurance mechanism for public infrastructure.
ment of funding options for planning and project

State Spotlight: Vermont

The State of Vermont’s Emergency Relief and Assistance Fund covers
up to 17.5 percent of FEMA’s non-federal cost share requirement for
communities that adopt certain resilience policies and just 7.5 percent
for communities that choose not to participate. At a special resilience
meeting of the Maine Climate Coucil in January, Julie Moore, Secretary
of the Vermont Agency of Natural Resources, explained, “In terms of
Vermont’s key tools and approaches, a big piece has been aligning state
programs, funding, and incentives. This includes the Emergency Relief
and Assistance Fund program that increases cost shares for municipalities
who are taking the necessary steps to improve their infrastructure.”

Infrastructure Rebuilding and Resilience Commission 55

 Strategy Implementation Table III. 11
Lead (and
Activity Timeframe Status Resources
partners)

Assess the state’s funding need 0-2 years GOPIF Existing

for infrastructure resilience and State NOAA CRRC
projects over the next 10 years Resilience grant
and its ability to borrow or raise Office
revenues for those projects.

Convene a work group to 0-2 years GOPIF Existing

develop a plan for sustained, and State NOAA CRRC
long-term funding sources Resilience grant
and the banking and lending Office
mechanisms (e.g., bonds,
revenues, a resilience bank)
for improving the resilience of
Maine’s infrastructure.

Strengthen MEMA’s Disaster 3-5 years MEMA Would

Recovery Fund (DRF): (with GOPIF require
Raise or eliminate the Fund’s and MOCA) legislative
statutory balance limit. action
Provide a reliable, long-term
funding allocation.
Revise the Fund’s chapter rule
to prioritize provision of the
non-federal cost share to FEMA
disaster programs resulting from
a Presidentially Declared Disaster
or Emergency and to prioritize
building back with greater
resilience after disasters.
Restructure the Fund’s non-
federal cost share formula to
incentivize municipal adoption
of resilience practices and higher
standards.

Convene a work group to 3-5 years GOPIF Existing

evaluate the feasibility of and State NOAA CRRC
various insurance models for Resilience grant
public infrastructure and private Office
working waterfront properties.

Expand loan and incentive 6-10 years DECD Requires

programs to help businesses that budget/
support infrastructure projects legislative
(such as construction firms and action
engineering firms) to invest
in equipment and systems for
resilience-related projects.

56 STATE OF M AINE
 THE COM M ISSION’S PROCESS

Overview of the Commission’s Work

The Commission is co-chaired by Dan Tishman and Linda Nelson, and consists of 24 individuals, including
state and local officials; representatives of affected communities, businesses, and industries; and experts in infra-
structure, construction, engineering, electrical utilities, floodplain management, financing, philanthropy, emer-
gency response, and climate science. Staff from the Governor’s Office of Policy Innovation and the Future and
Maine Emergency Management Agency provide policy and technical support, while a consulting team provides
analytical services, strategy research, and expertise in disaster resilience practices.

The Commission held public listening sessions and site visits in Stonington, Old Orchard Beach, Saco, Rumford,
Mexico, Jay, Rockland, Machias, and Caribou. The listening sessions allowed the Commission members to
learn directly from town leaders, municipal and county emergency managers, and impacted residents and busi-
nesses. The Commission’s official meetings, held both virtually and in person between May 2024 and May 2025,
engaged experts from other states, including Vermont, Texas, and Colorado, and leveraged the expertise of each
Commission member.

In November 2024, the Commission published an interim report that captured priority topics and draft rec-
ommendations from its first 6 months of work. The co-chairs released the interim report in Hallowell, where
floodwaters from the Kennebec River inundated the downtown during the December 2023 storm. The report
identified rebuilding and preparedness priorities for Maine in the immediate and near term and outlined addi-
tional considerations for long-term resilience.

Following the release of the interim report, the Commission convened for further discussion and deliberation
between December 2024 and April 2025. During this time, Commission members identified areas that required
further attention, leading to the creation of four small groups, each of which met at least twice for deeper explo-
ration of certain topics. These small groups provided the rest of the Commission with suggestions, and members
continued to build on and refine the draft recommendations and resolve any gaps across the plan. After deep-
ening their analysis, the Commission developed its final report.

Infrastructure Rebuilding and Resilience Commission 57

 Community Listening Sessions
The Resilience Commission held listening sessions throughout Maine to hear about storm impacts and recovery
efforts from local leaders, emergency responders, and municipal staff. Visits included Stonington in Hancock
County; Old Orchard Beach and Saco in York County; Rumford and Mexico in Oxford County; Jay in Franklin
County; Rockland in Knox County; Machias in Washington County; and Caribou in Aroostook County.

During visits to Maine’s coastal counties, Commission members toured areas impacted heavily during the
January 2024 storms. These storms impacted much of Maine’s diverse coastline, ranging from severe sand dune
erosion in southern Maine’s low-lying coastal areas to flooding and wave damage in Midcoast and Downeast
Maine’s rocky harbors and shorefronts. During visits to Maine’s inland counties, Commission members toured
areas heavily impacted by the June 2023 and December 2023 storms. Community leaders in Franklin, Oxford,
and Aroostook counties spoke of heavy rain and fast-rising water levels that stranded people, washed out roads,
closed businesses, and damaged homes and neighborhoods.

Each listening session and site visit provided Commission members with local examples of the challenges com-
munities face as they recover from storm damage and prepare for future storms.

Stonington Listening Session The Deer Isle Causeway, the sole access to Deer Isle and
Stonington, located in Hancock County, is one of Stonington, was overtopped and impassable during
the most productive working waterfronts in Maine. much of the storms’ duration. The Commission’s site
Stonington and neighboring Deer Isle experienced sig- visit to Stonington included the Governor’s signing
nificant impacts from the January 2024 storms, includ- of the Executive Order to Establish the Commission
ing extreme flooding that closed and damaged many on Infrastructure Rebuilding and Resilience, a tour of
public roads and storm surge that severely damaged storm impacts and rebuilding efforts, and a listening
public and private working waterfront infrastructure. session with local leaders.

George O’Keefe, Rumford Town Manager, addresses the Commission during their visit to tour storm related
impacts there in 2024.

58 STATE OF M AINE
Old Orchard Beach and Saco Listening Session home to various marine businesses, and enable trans-
In York County, the increasing frequency and sever- portation and emergency services for island communi-
ity of coastal storm events represent a major threat to ties. Adjacent landside parks host three major festivals
the region’s visitors, jobs, and wages. The back-to-back each year that bring thousands of visitors to the region.
January 2024 storms brought hazards including snow, The city has undertaken extensive resiliency planning
rain, wind, flooding, storm surge, and power outages to in recent years to guide improvements to waterfront
York County. In the aftermath of the January storms, facilities, park spaces, and adjacent infrastructure. The
county officials mobilized to address the impacts of plans include “flexible resilience” that prepares for sea
these storms but faced significant bureaucratic, finan- levels 2.7 feet higher than today and allows for addi-
cial, and logistical challenges. tional adaptive measures in the future without requir-
ing a full rebuild of the facilities. The city has secured
The Commission visited Camp Ellis in Saco, a resi- state and federal funding for some phases of construc-
dential beach community at the mouth of the Saco tion and is in need of additional funding to fully imple-
River. A mile-long jetty constructed by the Army ment the plans.
Corps of Engineers in the 1870s was intended to keep
the river mouth navigable by preventing sedimenta-
tion. Instead, the jetty deprives the adjacent beach of
its source of sand and concentrates wave energy on the
beach dune during storms. The beach is now almost
entirely eroded, leaving little natural defense for the
community and infrastructure at Camp Ellis.

Rumford, Mexico, and Jay Listening Session

The Commission visited Rumford, Mexico, and Jay to
meet with local leaders and view areas impacted by mul-
tiple flooding events in 2023. The towns of Rumford
and Mexico are located along the Androscoggin River
Machias Listening Session
in Oxford County. Like numerous towns in western
Maine, Rumford and Mexico experienced severe flood- The Commission visited Machias to meet with local lead-
ing impacts during the December 2023 storm that ers, view areas impacted by flooding, and learn about cli-
dropped approximately 7 inches of rain on the region mate resiliency measures the town is pursuing. Machias
and caused the Androscoggin River and adjacent tribu- is the county seat of Washington County and serves as
taries to overtop roads, flood houses, wash out culverts, a key service center for the region. Machias has a highly
and cause extensive damage. The town of Jay is located vulnerable downtown waterfront with a complex envi-
along the Androscoggin River in Franklin County and ronment of natural and manmade features. Three major
experienced washouts during repeated storms in May, freshwater rivers enter Machias Bay — the Machias
June, and December of 2023. River, the Middle River, and the East Machias River —
and the Bay’s natural tidal funneling effect causes high
Rockland Site Tour vertical tidal range. In addition, the bowl-shaped geog-
The Commission visited Rockland for a tour of water- raphy of downtown Machias causes high stormwater
front infrastructure that sustained damage during the flow into the area during precipitation events, stressing
January storms. Rockland’s multi-use piers and related the town’s aging stormwater infrastructure and further
facilities serve commercial and recreational vessels, are exacerbating tidal and freshwater flooding.

Infrastructure Rebuilding and Resilience Commission 59

 U.S. Highway Route 1, which cuts through downtown County flood maps are out of date, making it challeng-
Machias and serves as a major road artery in the region, ing to assist communities in resilience planning for
passes over the Machias Dike. The Machias Dike and floods. Local leaders noted several challenges specific
causeway is an embankment structure with multiple to Aroostook County’s northern location. For exam-
box culverts, timber and stone masonry, earthen fill, ple, fuel is typically delivered to the county from south-
and tidal flap gates. The dike crosses the Middle River ern Maine, exposing a risk that poor weather and storm
where the river joins the tidal portion of the Machias events may cause delays in fuel reaching northern towns.
River. The dike is severely deteriorated from a trans- The electrical system in the region is antiquated, and mit-
portation infrastructure standpoint and restricts tidal igating potential long-term power outages is a resilience
flow and fish passage to the upstream tidal marsh of focus area for the county. Managing an extended outage
the Middle River. During storm events, including the includes addressing access to resources such as food and
January 2024 storms, prevailing winds out of the south fuel, as well as systems such as communications, work,
and southeast push water and waves directly at the dike. and banking.
Storm surge causes water to flow over the dike leading
Hallowell Press Event
to further deterioration and flooding of the adjacent
downtown areas. The storms also damaged the Down The Commission held a press event in Hallowell to
East Sunrise Trail, a popular multi-use corridor con- release its interim report and recommendations. At
necting eastern Maine that passes through Machias the event, the owners of a Water Street property shared
and serves as an economic engine for the town. their story of recovering from the December 2023
flood, which included replacing all floor joists on the
Aroostook County Listening Session first floor for the affected businesses, mold remedi-
The Commission conducted a hybrid virtual and in-per- ation, foundation strapping, re-insulation, electrical
son listening session in Caribou in Aroostook County. work, basement flood vent installation, sump pumps,
Regional leaders and emergency managers and local offi- and sloped drainage to allow for easier water reces-
cials from Caribou, Frenchville, Limestone, Presque Isle, sion. The owners were aided by a Business Recovery
and Van Buren shared experiences from storm events and Resilience Fund award from the Department of
experienced in the last few years, updates on resilience Economic and Community Development.
planning, and details on regional needs. Aroostook

On September 6, 2024, Commission members visited Caribou to meet with regional and local leaders and
emergency managers, and discuss storm events the region had experienced in the last few years as well as
resilience planning needs across Aroostook County.

60 STATE OF M AINE
 Local business owner Rich
Friscia, above, leads local
leaders on a tour of his
historic Hallowell building
on Water Street, which was
lifted from its foundation by
flood waters in the December
2024 storm. The building
has now been repaired with
funding through a state
business resiliency grant
to help it withstand future
storms.

Infrastructure Rebuilding and Resilience Commission 61

 Commission Meetings
Between July 2024 and May 2025, the Commission convened regularly to hear perspectives from local leaders
and state experts on Maine’s current approach to response, recovery, and rebuilding from extreme storms, and
considerations of how to improve the state’s approach moving forward. The Commission also heard from other
states — including Texas, Vermont, and Colorado — about lessons learned from flood and disaster responses and
subsequent infrastructure resiliency policies and projects. During October and November 2024, the Commission
reviewed and refined recommendations and determined priority areas.

Expert presentations and key discussions included the following:

• 2023-2024 Storms and Climate Connections, a Municipal Technical Assistance Program, an
Sea-Level Rise: A presentation from the Maine Emergency Relief Assistance Fund, and a Flood
Geological Survey and University of Maine high- Resilient Communities Fund. Based on lessons
lighted recent climactic trends in Maine. Maine’s from Vermont, Commission members discussed
climate is getting warmer and wetter with more emerging recommendations, such as exploring
extremes and variability. The rate of sea level rise state codes and standards, bolstering the state’s
has been increasing from 0.8 inches per decade on municipal technical assistance programs, lever-
a long-term scale, to about 2.0 inches per decade aging regionalism and partnerships as vehicles to
since 2002. Mean sea levels set numerous records scale solutions, reducing barriers to funding oppor-
in 2023 and 2024. The storms on January 10 and tunities, and statewide insurance mechanisms. The
January 13, 2024, set records along Maine’s coast- Commission discussed the need to better under-
line due to coinciding storm surge, tide level fluc- stand changes in risk; ways of evaluating costs and
tuations, and sea-level rise. risks when making decisions; and available infor-
mation, modeling, and digital tools related to flood
• Storm Preparation, Response, and Delivery: risk (for example, climate-informed floodplain
The Maine Emergency Management Agency modeling).
(MEMA) provided information on the agency’s
role in coordinating support across all phases of • Working Waterfront Overview & Perspectives
emergency management from mitigation and pre- on Working Waterfront Resilience: The
paredness to response and recovery. Department of Marine Resources provided an
overview of the status of working waterfront
• Lessons learned from the Rebuild Texas infrastructure in Maine and existing programs in
Commission: Dr. Sam Brody, Director of the the state that support and protect working water-
Institute for a Disaster Resilient Texas at Texas fronts. Much of Maine’s working waterfront infra-
A&M University, provided a summary of the structure experienced severe storm damage in the
Texas “Eye of the Storm” report developed fol- January 2024 storms. In addition, working water-
lowing Hurricane Harvey. The report provided front infrastructure faces pressure from compet-
a flood mitigation framework organized in four ing uses, redevelopment, and disrepair. A panel of
components: Avoid, Accommodate, Resist, and working waterfront stakeholders shared perspec-
Communicate. tives on the challenges facing the waterfront con-
struction and engineering industry, and barriers
• Lessons from Vermont: Policy actions taken faced by municipalities to address working water-
after Tropical Storm Irene: Vermont experi- front resiliency in their communities.
enced major flooding in 2011 and again in 2023
and 2024. Julie Moore, Vermont’s Secretary • Managing the Unavoidable: Capacity and
of Natural Resources, shared key tools and Planning, Permitting, and Paying for Resilient
approaches Vermont has implemented to increase Infrastructure: The Maine Climate Council’s
the state’s flood resilience, including establishing Community Resilience Working Group provided

62 STATE OF M AINE
 a summary of their recommendations to assist Between December 2024 and April 2025, Commission
communities in understanding their exposure meetings shifted to condensing learnings, identifying
to climate threats and taking proactive steps to gaps, and building a structure and framework for a final
become more resilient. MEMA provided an over- report and infrastructure plan. The following months
view of capacity challenges within their agency,
included small group discussions with the opportunity
detailing the limited capacity among staff to take
on additional resiliency planning responsibilities to have more in-depth and thematic conversations.
(exacerbated by multiple federal disaster recovery Expert presentations and key discussions of new mate-
processes). The Department of Environmental rial included:
Protection (DEP) provided an overview of per-
• Flood Risk Data Status and Analyses, Part 1:
mitting processes, proposed legislation, and the
Dr. Sam Brody and Dr. Wesley Highfield presented
need for customer support capacity to field calls,
a survey of the flood data landscape in Maine.
complete site visits, and advise permit seekers. The
Current data on natural features, structures, and
Maine Bureau of Insurance provided an overview
social vulnerability is robust but there are issues
of flood insurance programs and the relatively low
with the age and resolution of information, such
participation in Maine and offered considerations
as the floodplain maps which need to be updated
for improvement.
for accurate planning and risk communication.
• State of Maine Energy Landscape & Electric
Flood Risk Data, Part 2: Dr. Wesley Highfield
Utility Resilience: The Maine Governor’s Energy •
provided an update on an analysis of flood risk
Office gave an overview of the energy challenges in
Maine and several potential recommendations for using the National Flood Insurance Program’s
repetitive loss and insurance penetration data, and
consideration, including expanding baseline assess-
exposure across commercial, industrial, public and
ments of outages and grid vulnerabilities, adopting
residential buildings.
clean-energy technologies, exploring innovative
solutions, engaging regionally to advance cost-ef-
fective reliability systems, and planning for chal- • National Review Panel Feedback: Basilia Yao
lenges in volatile fuels that impact home heating. and Dr. Sam Brody reported on feedback about the
The Maine Public Utilities Commission gave November interim report gathered from interviews
an overview of grid planning, climate resilience with national experts on disasters, flood mitiga-
planning, and addressing storm damage costs. The tion, and resilience including plan implementa-
Commission also heard from Maine’s two inves- tion advice.
tor-owned electric utilities, Central Maine Power
and Versant Power, about storm impacts, recovery,
and long-term resiliency efforts.

• Lessons from Colorado: Colorado Grid

Resilience Strateg y & Funding: The
Commission heard from the Colorado Energy
Office and Colorado Resilience Office about
Colorado’s approaches to grid resilience, microg-
rid grant program, and cooperation with utilities
and communities.

• Water-Related Systems and Infrastructure:

The Commission heard from state officials about
Maine’s drinking water, wastewater, and stormwa-
ter infrastructure to inform their understanding of
resilience upgrade needs.

Infrastructure Rebuilding and Resilience Commission 63

 Small Group Discussions
To efficiently address the complex challenges related to Maine’s infrastructure resilience, between February and
March 2025 the Commission met in several small group convenings to examine the needs of specific topics.
These groups were tasked with exploring the details of Maine’s current challenges and providing suggestions
with innovative ideas and solutions to the full Commission. Small group topics included:
• Vulnerable Infrastructure Prioritization and • Workforce, Business Development, and
Working Waterfront Stakeholder Group: Municipal Capacity: Maine will need special-
Across multiple categories of infrastructure, facil- ized expertise throughout the public and private
ities and systems need to become more resilient to sectors that can plan, design, implement, and eval-
climate impacts. The group discussed sequencing uate resilience and rebuilding efforts. Investments
and prioritization approaches for investment of in existing initiatives with a proven record of suc-
limited resources. To prioritize what seems like cess must be complemented by imaginative new
an insurmountable amount of need, the group strategies and partnerships to ensure a healthy
identified three key criteria: protecting life and supply of well-trained workers (including munici-
public safety, preserving public health, and pre- pal and regional workers) and businesses that can
venting economic damage. Proactive risk mit- tackle these challenges. Expanding workforce
igation was recognized as a more cost-effective pathways through training programs, funding
path than post-disaster rebuilding, and economic resilience-related fields, and faculty positions in
analysis tools will be needed to help adequately high-need disciplines, would strengthen the base
upgrade infrastructure without paying for more of skilled workers. Supporting municipal capacity
than is needed. Beyond designing and installing through increased funding for emergency man-
infrastructure, planning and engagement with agement professionals, structured guidance for
communities early in decision making should be local governments, and a public communications
part of problem-solving. A working waterfront strategy on resilience all enhance locally led resil-
stakeholder group held parallel conversations ience measures. Enhancing business engagement
and discussed a systematic inventory and regional and stability would further ensure resilience proj-
approach to protecting Maine’s working water- ects are structured to provide a steady stream of
front infrastructure. work for businesses, and exploring targeted loan or

In July 2024, the Commission met with local leaders from the Towns of Rumford, Mexico, and Jay, and
emergency managers from Oxford County Emergency Management Agency to discuss impacts from storms
over the past two years and subsequent recovery and rebuilding efforts. Community leaders highlighted
the need for administrative support for documenting damages during the FEMA insurance reimbursement
process, as well as planning and engineering technical assistance for rebuilding with resilience.

64 STATE OF M AINE
 incentive programs could help businesses invest in Analysis and Research
equipment and infrastructure for resilience related The Commission secured the services of a consult-
projects. ing team consisting of Dr. Samuel Brody and Dr. Wes
Highfield of Texas A&M University and Basilia Yao
• Permitting & Building Codes: The challenge
of Matter+Form Consulting. The team’s members
of rebuilding infrastructure after a storm and
preparing infrastructure to be more resilient for supported commissions in Texas following Hurricane
future storms encompasses increasingly complex Harvey and in New York City following Superstorm
and technical projects that require engineering Sandy. Among several specialties and services, the team
expertise and time-sensitive decisions. Addressing analyzed data related to flood risk and disaster recovery
regulatory obstacles at the federal, state, and local funding in Maine.
levels will all be necessary to help streamline the
permitting process. The group discussed revising Analyses utilized OpenFEMA datasets to evaluate
federal work windows for rebuilding and resil- funding disbursed in the aftermath of disasters, with a
ience by addressing inconsistencies that can hin- focus on understanding the distribution of federal assis-
der projects, while still ensuring environmental tance. The datasets include FEMA Public Assistance,
protections. Expanding permit-by-rule for certain
Individual Assistance, hazard mitigation grants, and
activities that increase the resilience of a property
or structure were identified as paths for long-term National Flood Insurance Program claims. These anal-
storm preparation and faster rebuilding. To bol- yses involve tracking the allocation of disaster relief
ster building code enforcement, the small group funds across counties and over time.
emphasized the value of mentorship, networking
building, training, and other resources. When code From these analyses, the Commission gained a more
officers have access to training and resources, they nuanced picture of flood risk across the state. The con-
can support communities not just with enforce- sultant team:
ment but also be a source of expertise for safe and • Conducted a data gap analysis, including an assess-
resilient building practices. For example, after ment of existing datasets, their applications, and
severe storms when municipal staff capacity is appropriateness for inclusion in analyses that
stretched thin, code officers can often end up in address flood risk and mitigation. The gap analy-
recovery and planning roles. sis includes data held by the state and existing open
federal sources.
• Funding & Financing for Resilience Projects:
The State of Maine must become more active, capa- • Evaluated flood risks, storm surge threats, and
ble, and self-resourced in anticipation of more fre- vulnerabilities using a range of data and meth-
quent disasters. In conversations about the scale of odologies. Risk status is based on factors such as
resources needed to proactively and reactively pay floodplain map ages, storm surge risk to both struc-
for disaster damage, the group identified activities tures and populations, and LiDAR data to deter-
at the state and municipal level to advance financ- mine the readiness of high-resolution elevation
ing. Steps such as evaluating borrowing capacity models.
and potential revenue sources, strengthening the
Disaster Recovery Fund (DRF) through long- • Assessed the social vulnerability of communities
term funding, assisting municipalities to establish using standardized measures, including Maine’s
resilience reserve accounts, incentivizing regional social vulnerability data and health-based mea-
approaches to infrastructure investment, and sures from the Behavioral Risk Factor Surveillance
exploring models for insuring public infrastruc- System (BRFSS). Additionally, risks from natu-
ture and working waterfronts were all proposed ral-technical hazards (NATECH) will be eval-
for consideration. uated based on federal Toxic Release Inventory
(TRI) and EPA Superfund locations.

Infrastructure Rebuilding and Resilience Commission 65

 • Evaluated flood risks that may exist outside of offi- The consultant team developed a series of issue briefs
cially delineated floodplains, particularly focus- with recommendations drawn from successful exam-
ing on high-water marks and areas with National ples across the country, tailored to needs and opportu-
Flood Insurance Program claims and policies in nities in Maine:
X-zones.
• Local Capacity Building for Storm Risk Reduction
• Cataloged agricultural losses from past floods,
• Maine Disaster Data Service
with cross-references to recovery grants funded by
the U.S. Department of Agriculture. • Disaster-Related Funding and Technical
Assistance
• Assessed the distribution of existing flood insur-
ance policies, the status of structures in high-risk • Risk Communication and Awareness
zones, and the state of pre-FIRM claims, second • Resilience Overlay Districts
home claims, and repetitive loss/severe repetitive
loss properties. • Local Participation in the FEMA Community
Rating System (CRS)
• Provided links to potential funding opportuni- • Adoption of Disaster-Resilient Building Codes
ties, particularly in relation to projects and needs
identified in Maine’s state hazard mitigation plan. • Statewide Watershed Planning Program for Flood
Risk Reduction
• Proposed conceptual methodologies for generating
future mapping resources, including delineating
hazard overlay districts and watershed planning
districts that can be used to inform future growth
and development while reducing flood risks.

An aerial view of storm damage to the waterfront in New Harbor in 2024. Credit: Island Institute

66 STATE OF M AINE
 COM M ISSION M E M BER S
A representative with expertise in hazard Representatives from impacted industries:
mitigation: Curt Brown, Marine Biologist, Ready Seafood;
Sam Roy, Supervisory Physical Scientist, United Lobsterman; Co-Chair, Coastal and Marine
States Geological Survey Working Group, Maine Climate Council

A leader from Maine’s philanthropic sector:

Jim Murton, Owner, North Country
Rivers; Registered Maine Guide
Deborah Ellwood, President, Maine Community
Foundation
Two representatives from municipal
government:
An expert in climate science and related storm
events: Shiloh LaFreniere, Town Manager, Town of Jay
Peter Slovinsky, Marine Geologist, Maine Linda Nelson (Co-Chair), Director of Economic
Geological Survey and Community Development, Town of Stonington

A representative with expertise in A representative from a regional council or

infrastructure finance and planning: county government:
Charlie Colgan, Center for the Blue Economy, Emily Rabbe, Lincoln County Regional Planning
Middlebury Institute of International Studies at Commission
Monterey, and Professor Emeritus, University of
Southern Maine. Members from state agencies
Bruce Van Note, Commissioner, Maine
A representative with expertise in insurance: Department of Transportation
Robert Carey, Superintendent, Maine Bureau of
Insurance Patrick Keliher, Commissioner, Maine Department
of Marine Resources (Through March 2025)
A representative of populations facing Carl Wilson, Commissioner, Maine Department of
disproportionate impacts from storm events: Marine Resources
Noël Bonam, State Director, AARP Maine
Heather Johnson, Commissioner, Maine
A representative of an electrical utility: Department of Economic and Community
Development
Joseph Purington, President & CEO, Central
Maine Power Amanda Beal, Commissioner, Department of
Agriculture, Conservation and Forestry (designee:
Representatives from the construction Judy East, Director, Bureau of Resource Information
industry: and Land Use Planning)
Dan Tishman (Co-Chair), Principal and Chairman,
Tishman Realty & Construction Melanie Loyzim, Commissioner, Maine
Department of Environmental Protection
Jack Parker, Chairman & CEO, Reed & Reed
Dr. Puthiery Va, Director, Maine Center for Disease
Control and Prevention
A representative of the engineering industry:
Lissa Robinson, Senior Civil Engineer Peter Rogers, Director, Maine Emergency
and Hydrogeologist, GEI Consultants Management Agency
Hannah Pingree, Director, Governor’s Office of
Policy Innovation and the Future
Dan Burgess, Director, Governor’s Energy Office

Infrastructure Rebuilding and Resilience Commission 67

 E X EC U TI V E OR DER 8
An Order Establishing the Maine Infrastructure
Rebuilding and Resilience Commission
FY 23/24

WHEREAS, Maine communities endured severe damage from record-breaking riverine flooding, coastal storm
surge, and high winds during three extreme storm events striking in rapid succession between December 18,
2023 and January 13, 2024;

WHEREAS, communities suffered more than $90 million in damage to public infrastructure as a result of
these storms and millions of dollars more in damage to private property, businesses, and homes, demanding
public investment to help restore a broad range of infrastructure that is critical to local communities and the
state’s economy;

WHEREAS, Maine has requested eight presidential disaster declarations for severe weather events in the past
two years, far more than the preceding decade, challenging the state’s emergency management systems and
response capabilities;

WHEREAS, preexisting concerns such as increasing real estate valuations, the shortage of affordable housing,
and diminishing working waterfront infrastructure combine to create policy and fiscal challenges for Maine’s
communities and economy;

WHEREAS, recovery and rebuilding resources will continue to be needed as extreme storms, inland and coastal
flooding, and other natural hazards are projected to increase in frequency and severity as the climate warms;

WHEREAS, the Governor introduced, and the Legislature has now passed legislation to appropriate $60 million
to the Maine Infrastructure Adaptation Fund, Working Waterfront Resilience Grant Program, and Business
Recovery and Resilience Fund for grants to communities, businesses, and other entities to repair, rebuild, and
adapt infrastructure to support public safety, protect essential community and economic assets, and ensure long-
term resilience to increasingly severe weather;

WHEREAS, Maine has an opportunity to learn lessons for improving response and disaster recovery and long-
term resilience from the Maine Emergency Management Agency’s Disaster Recovery Team and from other states
affected by catastrophic flooding and coastal storms; and

WHEREAS, philanthropy, private capital, and local, state, and federal government entities can collaboratively
support and reinforce long-term rebuilding and resilience strategies that leave communities with less risk and
better prepared for the next disaster.

NOW THEREFORE, I, Janet T. Mills, Governor of the state of Maine, pursuant to authority conferred by
Me. Const. Art. V, Pt. 1, §§ 1 & 12, do hereby Order the following:

68 STATE OF M AINE
I. Commission Established; Purpose

A. The Maine Infrastructure Rebuilding and Resilience Commission (“Commission”) is hereby

established;

B. The purpose of the Commission is to advance and support the state’s approach to response, recovery,
and rebuilding related to the disasters of the preceding eighteen months, and provide analysis,
lessons and strategies from this recovery period, and make a report and recommendations to:

1. Ensure that Maine is maximizing the use of all federal, state, municipal and private funding
resources available for storm recovery and rebuilding and effectively deploying those funds
alongside state resources;

2. Monitor and describe the limitations of federal, state, and private sources of funding, including
insurance markets, on recovery and long-term resilience, and recommend both short-term
solutions to fill immediate gaps and long-term mechanisms to sustain resilience investments
into the future;

3. Explore and encourage public-private partnerships with private firms, engineering and consulting
experts, as well as private investors and philanthropy, to support rebuilding efforts and long-
term economic and community resilience in the face of storm recovery;

4. Document lessons from recovery activities that can be applied to future response and recovery
efforts, including recommendations for improving state and local systems for community
engagement and communications, response, and recovery;

5. Prepare a plan for Maine’s infrastructure that increases resilience and speeds rebuilding
through strategies that improve state and local planning, permitting, infrastructure design
and engineering, finance mechanisms, workforce capacity, and related needs while leveraging
available funding sources and capabilities; and

6. Build on recommendations from the Maine Climate Council and its working groups that are
relevant to the work of this Commission, including those supporting working waterfronts,
preparing for increasing coastal and riverine flooding, and informing policies intended to
improve storm response and greater long-term resilience.

Infrastructure Rebuilding and Resilience Commission 69

 II. Membership and Chairs

The Commission shall consist of the following members:

1. The Commissioner of the Department of Transportation or their designee;

2. The Commissioner of the Department of Marine Resources or their designee;

3. The Commissioner of the Department of Economic and Community Development or their designee;

4. The Commissioner of the Maine Department of Environmental Protection or their designee;

5. The Commissioner of the Department of Agriculture, Conservation and Forestry or their designee;

6. The Director of the Maine Emergency Management Agency or their designee;

7. The Director of Governor’s Office of Policy Innovation and the Future or their designee;

8. The Director of the Maine Center for Disease Control and Prevention or their designee;

9. The Director of the Governor’s Energy Office or their designee;

10. A representative with expertise in hazard mitigation;

11. A leader from Maine’s philanthropic sector;

12. An expert in climate science and related storm impacts;

13. A representative with expertise in infrastructure finance and planning;

14. A representative with expertise in insurance;

15. A representative of populations facing disproportionate impacts from storm events;

16. A representative of one of Maine’s electrical utilities;

17. A representative with expertise in engineering;

18. Two representatives with expertise in construction and rebuilding;

19. Two representatives from impacted industries;

20. Two municipal leaders, one from an inland and one from a coastal community; and

21. A representative from a regional council or county government.

70 STATE OF M AINE
The Governor shall appoint two members to serve as Co-Chairs of the Commission.

III. Funding and Staffing

A. The Governor’s Office of Policy Innovation and the Future shall provide such staff as may
be necessary to fulfill the Commission’s charge and may seek staffing and financial sup-
port from other state agencies and private entities to accomplish the goals and work of the
Commission;

B. The Co-Chairs and the members of the Commission shall serve without compensation.

IV. Proceedings and Records

A. The Co-Chairs will preside at, set the agenda for, and schedule Commission meetings. The
Commission shall meet as often as it deems necessary to complete its work. To the extent
practical, and to the extent that its fact-finding mission is not hindered, the Commission
should conduct its work in a manner that is open and accessible to the public. Records,
proceedings and deliberations of the Commission are not subject to the requirements of 1
M.R.S. c. 13, in accordance with sections 402(2)(F), (3)(J) and § 403(6) of that Chapter.
The Commission may conduct its work through subcommittees.

B. The Commission shall issue a public report of its findings to the Governor and Legislature.
The Commission shall issue an interim report by November 15, 2024 and shall issue a final
report no later than May 15, 2025.

Janet T. Mills
Governor

Infrastructure Rebuilding and Resilience Commission 71

 ACK NOW LEDGE M EN TS

The Commission would like to thank the Maine Community Foundation and the North Light Foundation for
their significant support of its work.
The Commission would also like to thank staff and consultants:

The staff of the Governor’s Office of Policy Innovation and the Future, including
Brian Ambrette, Senior Climate Resilience Coordinator
Sarah Curran, Deputy Director, Climate Planning and Community Partnerships
Jackie Farwell, Deputy Director, Strategic Communications and Public Affairs
Maggie Kelly-Boyd, Natural Resources Climate Policy Advisor
Dan Matz, Policy and Data Analyst, Economy and Infrastructure
Jenna Isaacson Pfueller, Communications Manager
Hannah Silverfine, Climate Risk Management Project Coordinator
The staff of the Maine Emergency Management Agency, including
Anne Fuchs, Director of Mitigation & Recovery
And
Dr. Samuel Brody of Harpswell 10 Inc.
Dr. Wesley Highfield
Basilia Yao of Matter + Form
Report Design: Cindy Butler, cindybutlerdesign.com
Proofreading: Kristina DeFrancesco, santaluciacommunications.com

72 STATE OF M AINE
 A PPENDI X: I M PLE M EN TATION ACTIONS BY Y E A R

Timeframe 0-2 years

Lead (and
Activity Timeframe Status Resources
partners)
Identify, prioritize, and strengthen vulnerable infrastructure.
Assess the vulnerability of state- 0-2 years All state agencies In progress, Existing
owned assets to climate change with GOPIF and assessment FEMA Hazard
hazards and extreme weather. State Resilience began in Mitigation
Develop vulnerability assessment Office March 2025 Assistance
protocols, resources, training, grant
and assistance for communities
to enable assessments at the
community or regional levels.
Develop a prioritization framework 0-2 years GOPIF Existing
and metrics for investments (with State FEMA Hazard
within categories of vulnerable Resilience Office Mitigation
infrastructure using the following and Governor’s Assistance
criteria: protection of life and Infrastructure grant
public safety, preservation of Implementation
public health, prevention of Committee)
economic damages. Emphasize
community input and leadership
with support and guidance from
the state.
Develop a robust pipeline of local 0-2 years MOCA Existing
infrastructure resilience projects Community NOAA CRRC
by providing planning, design, Resilience grant
and engineering assistance to Partnership
communities, thereby generating
a steady stream of work for
businesses.
Assist communities to effectively assess and reduce risk.
Expand tools and funding 0-2 years MOCA State Community Existing
for communities and regions Resilience Office Resilience FEMA BRIC
to assess vulnerabilities in and Community Partnership and NOAA
infrastructure, including culverts Resilience added CRRC grants;
and stormwater assets, drinking Partnership, technical Community
water and wastewater systems, with DACF, DOT assistance for Resilience
transportation, communications, MIAF, and other vulnerability Partnership
and other public and private agencies assessments grants
facilities that are essential to local in 2024.
economies.
Increase state and regional 0-2 years MOCA with the 10 LD 1 creates LD 1
capacity to assist communities regional councils Flood Ready authorizes
with flood and natural hazard risk Maine funding
reduction, prioritizing communities initiative and
that are rural and vulnerable to funds regional
natural disasters. certified
floodplain
managers
Encourage philanthropies and 0-2 years Maine Community
nonprofit organizations to support Foundation (with
capacity-building, pilots, and philanthropies
community engagement and and nonprofits)
education for resiliency.

Infrastructure Rebuilding and Resilience Commission 73

 Activity Timeframe Lead (and Status Resources
partners)
Develop a sustained public 0-2 years MOCA State Existing
communications strategy to raise Resilience Office NOAA CRRC
awareness, engagement, and with other grant
support community dialogue about agencies
resilience efforts and long-term
challenges.
Establish a homeowners resilience 0-2 years DPFR Bureau of LD 1 creates LD 1
program to provide grants to Insurance the Home authorizes
residents to strengthen their Resiliency funding
homes against damage and loss Program
from severe weather.
Assist towns to take actions 0-2 years MOCA State LD 1 creates LD 1
that reduce flood risk, protect Resilience Office Flood Ready authorizes
property, increase participation and Floodplain Maine funding
in the National Flood Insurance Management initiative
Program, and lower flood insurance Program
premiums.
Improve and protect energy infrastructure and increase energy resilience for customers.
Facilitate the collection and 0-2 years GEO Aligned with
publication of trend data on (with PUC, MEMA, Maine Energy
electricity outages and grid and utilities) Plan Objective
vulnerabilities. B, Strategy A
Monitor energy reliability, 0-2 years GEO Aligned
volatility, and costs for electricity (with regional with Maine
generation and delivery of fuels industry partners) Energy Plan,
for home heating during extreme Objective B,
cold periods and winter storms. Strategy A
Continue to address through the
advancement of the Maine Energy
Plan and other efforts.
Protect and promote resilience across a diverse mix of public and privately owned working
waterfront infrastructure.
Identify and map the most 0-2 years DMR/MOCA
vulnerable working waterfront Maine Coastal
infrastructure through a systematic, Program
statewide approach, considering (with working
economically vital facilities, waterfront
social vulnerability, and future stakeholders)
growth opportunities. Ground
truth vulnerability data with local
knowledge from harbormasters
and town staff.
Invest in resilience upgrades and 0-2 years DMR and DOT Existing
ongoing maintenance of public NOAA CRRC
working waterfront infrastructure grant and
to withstand sea level rise and NOAA CDS
extreme storms. funds
Strengthen privately owned 0-2 years MOCA/DMR NOAA CDS
working waterfront infrastructure Maine Coastal funds
by providing business resiliency Program (with
planning support and engineering DMR, DECD, DEP
and permit assistance to design
and complete resilience upgrades.

74 STATE OF M AINE
 Activity Timeframe Lead (and Status Resources
partners)
Enhance communications during and immediately after emergencies.
Upgrade emergency 0-2 years MEMA LD 1 provides
communication systems, practices, funding and
and training for state, county, staffing
and municipal leaders to ensure
dependable communication with
residents during emergencies.
Develop strategies to streamline 0-2 years MEMA LD 1 provides
and improve information sharing funding and
among state, county, and local staffing
emergency managers and officials.
Strengthen emergency coordination and rapid reaction capabilities across governments and
with the philanthropic and nonprofit sector to alleviate immediate post-disaster needs.
Develop and coordinate 0-2 years MEMA
opportunities for the philanthropic (with the Maine
and nonprofit sector to help fill Long Term
needs not being met by disaster Recovery Board
relief programs. and philanthropy
community)
Expedite permitting for post-disaster rebuilding, infrastructure strengthening, and resilience
projects.
Develop temporary contracts at 0-2 years DEP (with other Feb 2025:
state agencies to increase capacity permit-review DEP has 13
for permit application review agencies) willing and
during periods of high demand. qualified
vendors to
assist
Develop a list of suggested 0-2 years DEP Expand on
regulatory exemptions with (with other LD2030
appropriate environmental agencies) (2024)
safeguards for emergency
activities during and immediately
following a disaster.
Convene a regulatory reform 0-2 years DEP Existing
forum to identify potential changes (with other NOAA CRRC
to Department regulations to agencies) grant
facilitate climate resilience,
informed by outreach to affected
stakeholders, including the private
sector.
Engage federal agencies (such as 0-2 years DEP and GOPIF
the Army Corps of Engineers and (with other
NOAA Fisheries) about permitting agencies)
improvements such as restrictive
in-water work windows, duplicative
state and federal permits, and
lengthy agency review times.
Create educational materials to 0-2 years DEP Existing
raise awareness of permitting (with MOCA) NOAA CRRC
requirements, explain eligibility for grant and
expedited state permitting through new positions
permit-by-rule, and provide requested in
guidance for emergency rebuilding budget
work.

Infrastructure Rebuilding and Resilience Commission 75

 Activity Timeframe Lead (and Status Resources
partners)
Develop tools and education to make buildings more resilient.
Review state building codes for 0-2 years MOCA Building
opportunities to increase resilience Codes program
and protect structures from storm
and flood damage.
Improve data and information sharing to help leaders make informed decisions about risk.
Launch an Online Risk Data Hub 0-2 years MOCA State LD 1 provides
that centralizes existing regional Resilience Office funding and
and community-level hazard, risk, (with MEMA, staffing
and vulnerability information. GEO, and other
agencies)
Develop accessible products 0-2 years MOCA State Existing
and tools for communities based Resilience Office NOAA CRRC
on coastal and inland flood risk (with DOT, DACF, grant
models. MEMA)
Analyze flood insurance data 0-2 years MOCA State LD 1 provides
to develop a more accurate Resilience Office funding
assessment of flood risk.
Establish a statewide 0-2 years MOCA State LD 1 provides
communication and public Resilience Office funding
information program (similar to
Texas’ BuyersAware website) that
informs local decision makers
and residents about the risk
from flooding and other hazards,
providing guidance on how they
can mitigate potential adverse
impacts.
Maximize federal funding for disaster recovery and proactive resilience projects.
Assist communities through the 0-2 years MOCA Regional Existing
regional councils to navigate Community Resilience NOAA CRRC
complex federal grant programs. Resilience Collaborative grant
Partnership
Develop and launch the 0-2 years MEMA LD 1 provides
Safeguarding Tomorrow Revolving non-federal
Loan Fund to support hazard match and
mitigation and infrastructure staffing.
resilience projects.
Develop long-term funding and financing strategies for infrastructure resilience.
Assess the state’s funding need for 0-2 years GOPIF and State Existing
infrastructure resilience projects Resilience Office NOAA CRRC
over the next 10 years and its grant
ability to borrow or raise revenues
for those projects.
Convene a work group to develop 0-2 years GOPIF and State Existing
a plan for sustained, long-term Resilience Office NOAA CRRC
funding sources and the banking grant
and lending mechanisms (e.g.,
bonds, revenues, a resilience bank)
for improving the resilience of
Maine’s infrastructure.

76 STATE OF M AINE
Timeframe 3-5 years

Lead (and
Activity Timeframe Status Resources
partners)
Identify, prioritize, and strengthen vulnerable infrastructure.
Expand existing workforce 3-5 years Dept. of Labor
training programs, including (with University
apprenticeships and pre- of Maine System,
apprenticeships, service corps, and Maine Community
UMS’s internship initiatives, with a College System,
focus on resilience-related fields Career and
such as construction, engineering, Technical
and community planning. Education
programs, and
Construction
Training
Programs)
Assist communities to effectively assess and reduce risk.
Assist towns to establish resilience 3-5 years MOCA Community
reserve accounts and capital Community Resilience
investment plans. Resilience Partnership
Partnership grants
Provide data and education 3-5 years MOCA
for communities to establish
“resiliency overlay districts” using
the best available science and
data to reduce risk in areas where
additional protective measures are
needed.
Improve and protect energy infrastructure and increase energy resilience for customers.
Develop an initial critical facility 3-5 years GEO
map using available energy (with PUC and
resilience-related information. utilities)
Enable the adoption of clean 3-5 years GEO
energy powered microgrids (with PUC and
that enhance storm resilience, utilities)
especially for critical services and
facilities that serve vulnerable
populations.
Protect and promote resilience across a diverse mix of public and privately owned working
waterfront infrastructure.
Create new policy options, 3-5 years MOCA/DMR
funding, and technical assistance, Maine Coastal
such as an entity outside of state Program (with
government with the capacity to DMR, LMF
protect critical private working and working
waterfront properties at risk of waterfront
conversion to non-marine uses. stakeholders and
the philanthropy
community)
Enhance communications during and immediately after emergencies.
Develop and strengthen 3-5 years MOCA
relationships with vulnerable (with MEMA and
communities to ensure that all the Office of New
Maine people can quickly access Americans)
trusted sources of emergency
communications and disaster
response.

Infrastructure Rebuilding and Resilience Commission 77

 Activity Timeframe Lead (and Status Resources
partners)
Strengthen emergency coordination and rapid reaction capabilities across governments and
with the philanthropic and nonprofit sector to alleviate immediate post-disaster needs.
Increase engagement and 3-5 years MEMA
education among county (with Volunteer
and municipal officials, the Maine, Maine
philanthropic and nonprofit sector, Community
and donors about the mechanisms Foundation, and
for requesting and providing other donors)
disaster relief assistance.
Increase funding for emergency 3-5 years State, county,
management staffing at state, and local
county, and local levels. governments.
Assist communities to formalize 3-5 years MEMA
networks and contracts for (with county
disaster recovery services (e.g., emergency
debris management, construction management
contractors). agencies)
Expedite permitting for post-disaster rebuilding, infrastructure strengthening, and resilience
projects.
Propose expanded uses of permit- 3-5 years DEP
by-rule and include additional
resilience-related practices (e.g.,
making wharves and piers more
resilient).
Develop tools and education to make buildings more resilient.
Develop model ordinances, 3-5 years MOCA Building
resilient building codes, and higher Codes and
standards and assist municipal Floodplain
adoption to help communities programs
reduce risks from flooding and (with other
other natural hazards. For example, agencies)
consider the benefits and costs of
incorporating relevant sections of
the ASCE 24-24 Flood Resistant
Design and Standards in the state’s
model floodplain ordinance.
Implement additional regional 3-5 years MOCA Building Build on Existing and
code enforcement programs with Codes program recent future FEMA
awareness of how codes and (with MEMA) regional code BRIC grants
enforcement needs vary by region. enforcement
pilot project
Assist local permitters, inspectors, 3-5 years MOCA Building
and code enforcement officers Codes program
to be knowledgeable resources (with community
for property owners to access colleges)
information and assistance, not
only enforcement.
• Grow continuing education
offerings at community
colleges and mentoring
opportunities that support new
code enforcement officers.
• Broaden training opportunities
for code enforcement officers
with emphasis on resilience-
related resources for property
owners and intersections with
permitting.

78 STATE OF M AINE
 Activity Timeframe Lead (and Status Resources
partners)
Maximize federal funding for disaster recovery and proactive resilience projects.
Adopt an enhanced State Hazard 3-5 years MEMA
Mitigation Plan to qualify for (with other
additional federal resilience agencies)
funding.
Develop and implement a funding 3-5 years MOCA State
plan that maintains state, regional, Resilience Office
and local capacity built with funds (with Governor’s
from Maine’s NOAA CRRC grant Office and
and transitions successful grant- agencies)
funded activities to other funding
sources.
Develop long-term funding and financing strategies for infrastructure resilience.
Strengthen MEMA’s Disaster 3-5 years MEMA Would require
Recovery Fund (DRF): (with GOPIF and legislative
MOCA) action
1. Raise or eliminate the Fund’s
statutory balance limit.
2. Provide a reliable, long-term
funding allocation.
3. Revise the Fund’s chapter rule
to prioritize provision of the
non-federal cost share to FEMA
disaster programs resulting
from a Presidentially Declared
Disaster or Emergency and
to prioritize building back
with greater resilience after
disasters.
4. Restructure the Fund’s non-
federal cost share formula to
incentivize municipal adoption
of resilience practices and
higher standards.
Convene a work group to evaluate 3-5 years GOPIF and State Existing
the feasibility of various insurance Resilience Office NOAA CRRC
models for public infrastructure grant
and private working waterfront
properties.

Infrastructure Rebuilding and Resilience Commission 79

 Timeframe 6-10 years

Lead (and
Activity Timeframe Status Resources
partners)
Identify, prioritize, and strengthen vulnerable infrastructure.
Recruit more students into 6-10 years University of
resilience-related fields such Maine System,
as engineering and community Maine Community
planning. College System
and Career
and Technical
Education
programs
Assist communities to effectively assess and reduce risk.
Incentivize communities to take 6-10 years MOCA Community
regional or watershed approaches Resilience
to planning, prioritization and Partnership
investment in risk reduction and grants
resilient infrastructure.
Improve data and information sharing to help leaders make informed decisions about risk.
Increase the number of river and 6-10 years DACF Maine
tide gauges to improve real-time Geologic Survey
access to water level monitoring
and predictions.
Establish a Center for Disaster 6-10 years Universities and
Risk Analysis in partnership with philanthropy
universities and philanthropy that community
will identify critical data gaps,
develop new analytical capabilities,
and train a workforce skilled in risk
communication and management.
Develop long-term funding and financing strategies for infrastructure resilience.
Expand loan and incentive 6-10 years DECD Requires
programs to help businesses that budget/
support infrastructure projects legislative
(such as construction firms and action
engineering firms) to invest
in equipment and systems for
resilience-related projects.

80 STATE OF M AINE
The iconic Pemaquid Point Lighthouse shines bright again, after it was restored following damage from
the winter 2024 storms. The century-old bell tower in Bristol was devastated when storm surge wiped out
two brick walls from the historic structure. Volunteers salvaged some of the original bricks to help repair
it, cleaned up debris immediately following, and Bristol Parks and Recreation worked to ensure the repairs
were done as authentically as possible. Now, additional stainless steel rods will help hold the roof and
walls together in the event of another storm event. Credit: Town of Bristol
 Infrastructure
Rebuilding and Resilience
Commission

maine.gov/future/infrastructure-commission