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The city was evacuated of the people that were willing to go ... about 80% got out, I seem to recall. No matter how mandatory an evacuation is, there are always people who think that doesn't mean them.
Disaster plans are based on expectations ... you speculate about the loss of the entire city, but plan for about a quarter to half of that extent. That's just how it's done. Every storm is not a Cat 5, and not every Cat 3 will leave this kind of extreme devestation in it's wake.
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