When Hurricane Helene plowed over the Southeast last September, it caused more inland deaths than any hurricane in recorded history. The highest per capita death toll occurred in Yancey County, a rural expanse in the rugged Black Mountains of North Carolina devastated by flash flooding and landslides.
On Monday, we published a story recounting what happened in Yancey. Our intent was to show, through those horrific events, how highly accurate weather warnings did not reach many of those most in harm’s way — and that inland communities are not nearly as prepared for catastrophic storms as coastal ones. No one in Yancey received evacuation orders — and many, including those living in high-risk areas and caring for young children and frail older people, didn’t flee because they didn’t see clearer signs of urgency from the county.
Much has been written about Helene, but very little focused on evacuation orders. During four months of reporting, we found that the responses of local officials across western North Carolina’s mountain counties differed a great deal. We also found that the state lags behind others in terms of what it requires of its county-level emergency managers and that legislators paused for almost a decade an effort to map landslide hazards in the counties that were hardest hit by Helene.
Here are five key discoveries from our reporting:
1. Some counties in harm’s way issued evacuation orders. Others did not.
To determine which cities and counties communicated evacuation orders, we reviewed more than 500 social media posts and other types of messaging that more than three dozen North Carolina jurisdictions shared with their residents in the lead-up to the storm. We compared that with a letter Gov. Roy Cooper sent to then-President Joe Biden seeking expedited disaster relief.
We found that by nightfall on Sept. 26, the day before Helene hit, three counties near Yancey issued mandatory evacuations, targeted toward people living close to specific dams and rivers, and at least five counties issued voluntary evacuation orders.
McDowell County, just southeast of Yancey, took particularly robust actions to warn residents about the storm, including issuing both mandatory and voluntary evacuation orders in enough time for people to leave. Henderson County, southwest of Yancey, targeted a voluntary evacuation order at residents living in floodplains that have a 1 in 500 chance of flooding annually, and its directions were clear: “The time is now for residents to self-evacuate.”
Yancey and at least four other nearby counties also did not issue evacuation orders. Yancey’s emergency manager, Jeff Howell, told us he doubted the county commissioners would support issuing orders or that local residents would heed them given the area’s culture of self-reliance and disdain for government mandates, especially regarding property rights. But some Yancey residents said they would have left or at least prepared better.
Although local officials received repeated warnings — including one that said the storm would be among the worst weather events “in the modern era” — some argued that they couldn’t have done more to prepare because the storm’s ferocity was so unprecedented.
We found that inland mountain communities too often lack the infrastructure or planning to use evacuations to get residents out of harm’s way in advance of a destructive storm like Helene. Some officials in Yancey, for instance, said that they weren’t sure where they would have directed people to go in the face of such an unprecedented onslaught of rain and wind.
In recent years, far more people died in the continental U.S. from hurricanes’ freshwater flooding than from their coastal storm surges — a dramatic reversal from a decade earlier. That’s largely due to improved evacuations along the coasts.
Several Eastern states — including Florida, North Carolina, South Carolina and Virginia — have adopted plans called Know Your Zone to execute targeted evacuations when storms approach. But these plans don’t often extend very far inland, even though warming ocean temperatures create stronger storms. Powerful storms that are not hurricanes can also turn deadly. In February, storms killed at least 24 people in Kentucky. More have died since in other storms.
2. Disaster messaging varied considerably by county.
To understand how local officials communicated disaster warnings to their residents, we compiled a timeline of alerts and warnings sent out by the National Weather Service and then scoured contemporaneous social media posts that more than three dozen jurisdictions were sharing with their residents. We found big disparities.
For instance, in addition to issuing evacuation orders, McDowell County put out flyers in English and Spanish that warned of life-threatening flash floods and urged all people in vulnerable areas to “evacuate as soon as possible.” Many did.
And about 36 hours before Helene hit, Haywood County’s sheriff warned in a brief video message that a “catastrophic, life-threatening event is about to befall” the county, which has one of the larger populations in western North Carolina. The emergency services director, standing beside him, emphasized: “This message is urgent.” The sheriff then asked residents, starting that night, to “make plans or preparations to leave low-lying areas or areas that are threatened by flooding.” He ended with: “Please, seek safety — and do so now.”
Almost an entire day later, with Helene closing in, officials in rural Yancey were among those who used less-direct wording. In Facebook posts, they asked residents to “please prepare to move to higher ground as soon as you are able” and advised “now is the time to make plans” to go elsewhere as the final hours to leave before nightfall wound down. In one post, they softened the message, adding, “This information is not to frighten anyone.”
ProPublica interviewed dozens of survivors in Yancey, including many who told us that in retrospect they were looking for clearer directives from their leaders.
3. Unlike several nearby states, North Carolina does not require training for local emergency managers.
At the heart of evacuations are emergency managers, the often little-known public officials tasked with preparing their areas for potential disasters. Yet, education and training requirements for these posts vary considerably by state and community.
Yancey’s emergency manager had taken the job seven years before Helene hit after a long and robust Army career. He had no emergency management experience, however. In the years before Helene, he had been asking the county for more help — but by the time the storm arrived, it was still only him and a part-time employee.
Florida recently enacted a law mandating minimum training, experience and education for its counties’ emergency managers starting in 2026. Georgia requires its emergency managers to get the state’s emergency management certification within six months. But North Carolina doesn’t require any specific training for its local emergency managers.
4. North Carolina began examining landslide risks by county, but powerful interests stood in the way.
More than 20 years ago, North Carolina legislators passed a law requiring that landslide hazards be mapped across 19 mountain counties. They did so after two hurricanes drenched the mountains, dumping more than 27 inches of rain that caused at least 85 landslides and multiple deaths.
But a few years later, after only four of those counties were mapped, a majority of largely Republican lawmakers gave in to real estate agents and developers who said the work could harm property values and curb growth. They halted the program, cutting the funding and laying off the six geologists at work on it.
Almost a decade later, in 2018, lawmakers jump-started the program after still more landslide deaths. But it takes at least a year to map one county, so by the time Helene hit, Yancey and four others in the storm’s path of destruction weren’t yet mapped.
Without this detailed hazard mapping, emergency managers and residents in those areas lacked the detailed assessment of risk to specific areas to make plans before landslides clawed down the mountains, killing far more people. The U.S. Geological Survey has so far identified 2,015 Helene-induced landslides across western North Carolina.
The geologists back at work on the project are almost done mapping McDowell County. They would have finished it last year, but Helene derailed their work for a time.
5. We could find no comprehensive effort (yet) to examine lessons learned from Helene to determine how counties can prevent deaths from future inland storms.
Helene left many lessons to be learned among inland communities in the paths of increasingly virulent storms. But as North Carolina figures out how to direct millions of dollars in rebuilding aid, there has so far been no state inquiry into the preparedness of local areas — or what could better equip them for the next unprecedented storm.
Yancey County’s board chair said that he expects the county will do so later, but for now its officials are focused on rebuilding efforts.
A review commissioned by North Carolina Emergency Management examined its own actions and how its staff interacted with local officials. It found the agency severely understaffed. But it didn’t examine such preparedness issues as planning for evacuations or the training requirements for local emergency managers.
