NATIONAL DISASTER RECOVERY FRAMEWORK - Draft February 5, 2010 TABLE OF CONTENTS I. EXECUTIVE SUMMARY ................................................................................................................ 2 II. INTRODUCTION .............................................................................................................................. 5 III. PURPOSE OF THE FRAMEWORK ............................................................................................. 7 IV. CORE PRINCIPLES...................................................................................................................... 12 V. RECOVERY ROLES & RESPONSIBILITIES .......................................................................... 15 VI. ACHIEVING DISASTER RECOVERY ....................................................................................... 28 VII. RECOVERY COORDINATORS .................................................................................................. 32 VIII. RECOVERY SUPPORT FUNCTIONS ....................................................................................... 35 IX. PLANNING FOR A SUCCESSFUL DISASTER RECOVERY ............................................... 42 X. COMMUNITY CONSIDERATIONS .......................................................................................... 51 XI. ABBREVIATIONS & DEFINITIONS ........................................................................................ 55 I. EXECUTIVE SUMMARY 1 The National Disaster Recovery Framework (NDRF) draft outlines how community 2 recovery is supported on a national level. The framework builds on scalable, 3 flexible, and adaptable coordinating structures to align key roles and 4 responsibilities, linking local, state, tribal and federal governments, the private 5 sector, and voluntary, faith-based and community organizations that play vital roles 6 in recovery. It captures resources, capabilities, and best practices for recovering 7 from disaster, recognizing that significant challenges can confront all recovery 8 efforts, from a relatively localized event to a large-scale disaster that demands 9 substantial resources. Once finalized, this Draft NDRF is intended to be the 10 companion document to the National Response Framework (NRF) issued in January 11 2008. 12 13 In September 2009, the President charged the Department of Homeland Security 14 (DHS) and the Department of Housing and Urban Development (HUD) to establish a 15 Long-Term Disaster Recovery Working Group, composed of more than 20 federal 16 departments, agencies and offices, to provide operational guidance for recovery 17 organizations, as well as to make recommendations for improving the nation’s 18 approach to disaster recovery. 19 20 During the fall of 2009, DHS/FEMA and HUD sponsored outreach sessions in each of 21 FEMA’s ten regions and stakeholder forums in five cities across the nation to 22 provide stakeholders from a wide array of organizations and backgrounds the 23 opportunity to provide up-front input to the Working Group on ways to strengthen 24 disaster recovery. DHS/FEMA and HUD also organized discussion roundtables with 25 professional associations and academic experts. The Long-term Disaster Recovery 26 Working Group also created a web portal, www.disasterrecoveryworkinggroup.gov, 27 which enabled a large and diverse group of stakeholders to provide input. Over six 28 hundred stakeholders representing the local, state, tribal and federal governments, 29 as well as public and private sector organizations contributed more than six 30 thousand responses from across the nation. The draft NDRF reflects as core 31 principles the significant themes and recommendations that emerged from these 32 stakeholder outreach efforts. These principles include: 33 34 . Individual & Family Empowerment – Recovery is not only about 35 restoration of structures, systems, and services – although they are critical. A 36 successful recovery is also about individuals and families being able to 37 rebound from their losses, and sustain their physical, social, and economic 38 well-being. The shared recovery objective should always be to empower 39 people to recover from disasters by assisting them with compassion and 40 providing them the opportunities and tools to meaningfully participate and 41 contribute to the recovery effort; 42 . Leadership & Local Primacy- Local governments have primary 43 responsibility for disaster recovery in their community and play the lead role 44 in planning for and managing all aspects of community recovery. This is a 45 basic, underlying principle that should not be overlooked by federal and 46 other disaster recovery managers in their eagerness to assist. However, the 47 federal government is a partner and facilitator in recovery and must be 48 prepared to manage when the disaster impacts areas of primary federal 49 jurisdiction or national security, and assist should tribal, state, and local 50 governments be overwhelmed by a large-scale or catastrophic1 event. The 51 federal government must partner closely with tribal governments to support 52 their plans for addressing disaster recovery and encourage tribes to forge 53 partnerships with surrounding local and state governments as well. 54 . Preparation for Recovery- Critical to recovery preparedness is pre-disaster 55 planning, an ongoing responsibility for all levels of governments, individuals 56 and families, the business community, and voluntary, faith-based and 57 community organizations; 58 . Partnerships and Inclusiveness- Partnerships and inclusiveness are vital 59 for ensuring that all voices are heard from all parties involved in disaster 60 recovery, and that the most innovative and relevant solutions are 61 considered. This is especially critical at the local level, where non-62 governmental partners in the private and non-profit sectors (i.e., local 63 businesses, owners and operators of critical infrastructure and key 64 resources; and voluntary, faith-based, and community organizations) play a 65 significant role in meeting the needs of individuals and families, children, 66 individuals with disabilities, and others with access and functional needs. 67 . Communications – All disaster recovery managers should promote clear, 68 consistent, culturally-sensitive, and frequent communication of critical 69 recovery information through a process that is inclusive of and accessible to 70 the general public and stakeholders. Stakeholders should understand their 71 roles and responsibilities and have realistic expectations of the recovery 72 process and goals. 73 . Unity of Effort – For successful recovery to occur, stakeholders coordinate 74 and direct assistance resources to achieve recovery priorities developed by 75 the affected community. Shared priorities are built upon community 76 consensus and a transparent and inclusive planning process. 77 . Timeliness & Flexibility – For successful recovery to occur, timely recovery 78 activities and assistance are delivered through a coordinated and sequenced 79 process. Recovery programs and operations should be adaptable to meet 80 unmet and evolving recovery needs. 81 . Resilience & Sustainability – For successful recovery to occur, communities 82 should implement mitigation and resilience strategies that minimize their 83 1 Note: For the purposes of this draft, the definitions in the National Response Framework apply, except as specifically noted in the text or glossary. risk to hazards and strengthen their ability to withstand and recover from 84 future disasters. 85 86 Built as a document to forge a common understanding of roles, responsibilities, and 87 resources available for effective recovery, the NDRF is designed for all who are or 88 might be involved in disaster recovery. The key concepts in the document are the 89 need for structure – provided by the proposed Recovery Support Functions – 90 leadership – provided locally and strengthened through support by the proposed 91 State and Tribal Recovery Coordinators, private sector, faith-based and private non-92 profit leaders, and when needed, the proposed Federal Recovery Coordinator – and 93 planning – importantly both pre- and post-disaster. These concepts are explained 94 and developed in the NDRF. When combined with the full involvement of all 95 stakeholders, along with realistic and well communicated expectations of desired 96 outcomes, they constitute the building blocks for a successful community recovery. 97 98 The NDRF and the supporting guidance and tools that will follow its publication 99 work toward the development of a national disaster recovery strategy. Together, 100 the NDRF and the NRF provide the doctrine and guidance to implement the 101 response and recovery aspects of the National Homeland Security Strategy. In 102 addition, the National Infrastructure Protection Plan (NIPP) and the Critical 103 Infrastructure and Key Resources (CIKR) Annex to the NRF provide a bridge between 104 steady-state CIKR protection and resilience programs and incident management 105 activities. These documents incorporate and adopt the central tenets of the National 106 Incident Management System (NIMS) and support the primacy of local, state and 107 tribal governments in preparing for and managing the response and recovery from 108 natural and man-made disasters. 109 II. INTRODUCTION 110 Experience with recent disasters, such as the 2004 and 2005 hurricanes that struck 111 the Gulf Coast states and the 2008 Midwest Floods, have highlighted the need for 112 additional guidance, structure, and support specifically oriented to enhancing long-113 term recovery. This experience has resulted in a focus to better understand the 114 obstacles to disaster recovery and the challenges faced by communities who seek 115 disaster assistance. The National Disaster Recovery Framework (NDRF) defines an 116 approach to preparing for, planning for, and managing disaster recoveries that 117 addresses the complexity of long term recovery with flexibility and adaptability. 118 119 To better support communities and build a more resilient nation, the NDRF 120 provides operational guidance to all recovery partners. It focuses on how best to 121 restore, reconstruct and redevelop the social, natural, and economic fabrics of the 122 community. To accommodate the special challenges inherent in all disasters, this 123 framework is founded upon eight core and mutually supporting principles that are 124 essential to disaster recovery. Among them are partnership and inclusiveness, and 125 leadership and local primacy. All segments of a community need to participate as 126 partners in the development of their recovery goals. Strong leadership throughout 127 all levels of governments, especially at the local level, is needed to ensure an 128 inclusive planning process and instill confidence that well-planned recovery goals 129 can be achieved. 130 131 The NDRF defines: 132 133 . key recovery principles; 134 . roles and responsibilities of the recovery coordinators and other 135 stakeholders; 136 . a coordinating structure that facilitates communication and collaboration 137 among all stakeholders; 138 . guidance for pre- and post disaster recovery planning; and 139 . the overall process by which, together as a nation, we can capitalize on 140 opportunities to rebuild stronger, smarter, and safer communities. 141 142 These elements improve recovery support and expedite recovery of disaster 143 impacted individuals, families, businesses and communities. While the NDRF 144 speaks to all who are impacted or otherwise involved in disaster recovery, it 145 concentrates more fully on governmental actions. 146 147 The concepts and terms used in the NDRF are not new, with two exceptions. They 148 are: the Federal Recovery Coordinator (FRC) and State Recovery Coordinators 149 (SRC); and the Recovery Support Functions (RSF). The Coordinators are established 150 to provide cohesion and focus to the recovery efforts. Their jobs are to ensure that 151 all who have the capability to support community recoveries are actively engaged in 152 a well coordinated way. The Recovery Support Functions are six groupings of 153 federal agencies designed to provide a one-stop shop for communities as they deal 154 with infrastructure, housing, and other functional areas. Each Recovery Support 155 Function has coordinating and primary federal agencies, and can be expanded to 156 include tribal, state, and local government officials and private non-profit and 157 private sector partners. Importantly, the concepts of the Federal and State Recovery 158 Coordinators and Recovery Support Functions are fundamentally scalable, 159 depending upon the nature and scale of the disaster. 160 161 The NDRF builds on and aligns with the National Response Framework (NRF). While 162 the NRF anticipates the need for long-term recovery, it addresses primarily actions 163 during disaster response. Like the NRF, the NDRF seeks to facilitate understanding 164 and to develop a common planning framework. The NDRF incorporates and 165 expands on the key elements of the NRF, ESF #14, Long-Term Community Recovery, 166 adding leadership elements, organizational structure, planning guidance and other 167 components needed to coordinate continued recovery support to individuals, 168 businesses and community. The NDRF also aligns with the NIPP, which provides a 169 unified national framework and establishes robust coordinating mechanisms for 170 ensuring the resilience and protection of the nation’s critical infrastructure. 171 172 While the NDRF is built upon existing programs, authorities, and best practices, the 173 effective implementation of the NDRF requires interagency cooperation and 174 engagement across the federal government. This effort requires the assets and 175 support beyond those typically deployed to support initial aspects of response and 176 early recovery or initial restoration of essential services. As responsibilities, 177 capabilities, policies, and resources expand or change, the Framework will be 178 revised as needed to ensure the NDRF continues to provide a common but adaptable 179 approach to disaster recovery. 180 III. PURPOSE OF THE FRAMEWORK 181 The NDRF establishes a scalable system that coordinates and manages disaster 182 recovery operations to more effectively deliver recovery assistance to severely 183 impacted communities. It provides guidance and a flexible structure for disaster 184 recovery managers to operate in a unified, inclusive, and collaborative manner to 185 address the complexity of the recovery process and facilitate recovery assistance 186 and activities. The stakeholders addressed by the NDRF are the local, state, tribal, 187 and federal governments; individuals and families; persons with disabilities and 188 other access and functional needs; children; members of underserved communities; 189 the business community; and voluntary, faith-based and community organizations, 190 including advocacy groups, universities, professional associations, and 191 philanthropic foundations. 192 193 The NDRF clarifies the roles and responsibilities for stakeholders in recovery, both 194 before and after a disaster. It recognizes that recovery is a continuum and that the 195 ability and success of a community to accelerate the process and turn a tragedy into 196 an opportunity begins with pre-disaster preparedness, mitigation, community 197 capacity- and resilience-building efforts. It recognizes that when a disaster occurs, 198 social vulnerability and initial response actions (and inactions) influence recovery; 199 and that timely decisions can reduce the cost and time required for recovery. 200 201 The NDRF describes key principles and steps for recovery planning and 202 implementation. It promotes a process in which the impacted community can fully 203 engage and consider the needs of all its members, and assume the leadership in 204 developing recovery priorities and activities that are realistic, well-planned and 205 clearly communicated. 206 207 The NDRF advances the concept that recovery encompasses more than the 208 restoration of the community’s physical structures to their pre-disaster conditions. 209 It includes revitalizing and making more resilient and sustainable the economic, 210 social, educational, environmental and cultural fabric and networks of the impacted 211 community against future disasters. 212 Intended Audience 213 The Recovery Framework is written especially for government executives, private 214 sector and nongovernmental (NGO) leaders, and disaster recovery management 215 practitioners. First, it is addressed to senior leaders, such as mayors, other local 216 officials, state governors and other state officials, tribal leaders, and federal 217 department or agency executives– those who have authority, responsibility, and 218 equities in disaster recovery. For the nation to be prepared for all hazards, and 219 mitigate their impact upon communities, especially the restoration of economic and 220 social vitality of a community or region, its leaders must approach disaster recovery 221 through means which encourage collaboration, efficiency, transparency, and 222 community efficacy. 223 Leaders in the private sector and NGOs will find guidance in the NDRF for engaging 224 in pre-disaster planning for disaster recovery and plugging into the post-disaster 225 recovery coordination structure to enhance the effectiveness of their own recovery 226 and their contributions to the community-wide recovery. 227 228 At the same time, the NDRF informs disaster recovery management practitioners, 229 explaining the concepts of partnership and conditions necessary to achieve common 230 goals through collaborative recovery coordination. 231 232 Scope 233 The NDRF defines essential concepts for successful disaster recovery and provides 234 guidance to all stakeholders for the following recovery-related efforts: 235 . Defining roles and responsibilities for all stakeholders and participants. 236 . Providing a consistent recovery leadership for coordination and 237 communication. 238 . Establishing a scalable and flexible organizational structure for coordinating 239 recovery assistance. 240 . Promoting local economic recovery by striving to direct federal disaster 241 funds to local businesses within the declared area when warranted. 242 . Engaging in pre-disaster recovery planning and other recovery 243 preparedness, mitigation, and community resilience-building work. 244 . Engaging the public-private partnership under the NIPP to facilitate broad 245 coordination and information sharing among all levels of government and 246 private sector owners and operators of critical infrastructure. 247 . Facilitating post-disaster recovery planning, opportunities and resources to 248 rebuild a strong, sustainable, and resilient community. 249 . Developing and capturing best practices, tools, and metrics for: 250 Impacted communities to develop recovery priorities and measure 251 recovery progress and outcomes against their agreed upon objectives. 252 Governments and voluntary, faith-based and community 253 organizations providing assistance to track progress, ensure 254 accountability, and make adjustments to ongoing assistance. 255 . Establishing guidance for the transition from recovery back to steady-state, 256 including the shift of roles and responsibilities. 257 258 Applicability 259 The NDRF applies to all disasters, recovery partners, and recovery activities and is 260 adaptable for different levels of recovery needs. It facilitates and leverages 261 partnerships and collaboration among all stakeholders to ensure that recovery 262 assistance is effectively delivered to the impacted residents and communities. 263 Recovery Continuum 264 Ideally, the recovery continuum begins before a disaster strikes, with preparedness 265 activities such as planning, capability building, exercising, and establishing tools and 266 metrics to evaluate progress and success; mitigation planning and actions; economic 267 development planning, and vital partnership building, all of which contribute to the 268 community’s and the nation’s resilience. Post disaster recovery activities begin in 269 the early stages of the response operations and may last for years. Actions that help 270 recovery, resilience, and sustainability should be built into the steady state 271 operations of governments at all levels. 272 273 The NDRF focuses on intermediate and long-term recovery activities and 274 distinguishes these from response and stabilization activities. Even though 275 response activities often set the stage for recovery, the NDRF does not speak to 276 response operations and other emergent activities that immediately precede or follow a 277 disaster such as: life-saving, life-sustaining, property protection actions and other 278 measures intended to neutralize the immediate threat to life and property. 279 However, response activities can influence long-term recovery and be choice-280 limiting, and these long term recovery impacts must be considered for their 281 potential impact prior to implementation. 282 283 As response actions wind down, stabilization activities are primary. Stabilization is 284 the process in which the immediate impacts of an event on community systems are 285 managed and contained, thereby creating an environment where recovery activities 286 can begin. The various elements of a community system will stabilize on different 287 time frames, leading to a situation in which response, stabilization, and restoration 288 activities can occur concurrently. Stabilization includes such activities as: 289 290 . Providing essential health and safety services 291 . Providing congregate sheltering or other temporary sheltering solutions 292 . Providing food, water and other essential commodities for those displaced by 293 the incident. 294 . Providing disability related assistance/functional needs support services. 295 . Developing impact assessments on critical infrastructure, essential services, 296 and key resources. 297 . Conducting initial damage assessments. 298 . Conducting community wide debris removal, including clearing of primary 299 transportation routes of debris and obstructions. 300 . Restarting major transportation systems and restoring interrupted utilities, 301 communication systems, and other essential services such as education and 302 medical care. 303 . Establishing temporary or interim infrastructure systems. Supporting family 304 reunification. 305 . Supporting return of medical patients to appropriate facilities in the area. 306 . Providing basic psychological support and emergency crisis counseling. 307 . Providing initial individual case management assessments. 308 . Providing security and reestablishing law enforcement functions. 309 . Building an awareness of the potential for fraud, waste and abuse, and ways 310 to deter such activity, such as developing Public Service Announcements and 311 publicizing ways to report allegations of waste, fraud and abuse. 312 . Begin assessment of natural and cultural resources. 313 314 Intermediate recovery activities involve returning individuals and families, 315 critical infrastructure and essential government or commercial services back to a 316 functional, if not pre-disaster state. Such activities are often characterized by 317 temporary actions that provide a bridge to permanent measures. Examples of these 318 actions are: 319 320 . Continuing to provide individual, family-centered, and culturally appropriate 321 case management. Providing accessible interim housing (in or outside the 322 affected area depending on suitability) and planning for long-term housing 323 solutions. 324 . Returning of displaced populations and businesses if appropriate. 325 . Reconnecting displaced persons with essential health and social services. 326 . Providing supportive behavioral health education, intervention, including 327 continuing to provide crisis, grief, and group counseling and support. 328 . Providing access and functional needs assistance to preserve independence 329 and health. 330 . Updating hazard and risk analyses to inform recovery activities. 331 . Establishing a post-disaster recovery prioritization and planning process. 332 . Developing an initial hazard mitigation strategy responsive to needs created 333 by the disaster. 334 . Ensuring that national and local critical infrastructure priorities are 335 identified and incorporated into recovery planning. 336 . Developing culturally and linguistically appropriate public education 337 campaigns to promote rebuilding to increase resilience and reduce disaster 338 losses. 339 . Supporting capacity assessment of local, state, and tribal governments to 340 plan and implement recovery. 341 . Complete assessments of natural and cultural resources and develop plans 342 for long-term environmental and cultural resource recovery. 343 344 Long-term recovery is the phase of recovery that follows intermediate recovery 345 and may continue for months to years. Examples include the complete 346 redevelopment and revitalization of the damaged area. It is the process of 347 rebuilding or relocating damaged or destroyed social, economic, natural, and built 348 environments in a community to conditions set in a long-term recovery plan. The 349 goal underlying long-term redevelopment is the impacted community moving 350 toward self-sufficiency, sustainability, and resilience. Activities may continue for 351 years depending on the severity and extent of the disaster damages, as well as the 352 availability of resources, and include the following: 353 354 . Identifying of risks that affect long-term community sustainment and vitality. 355 . Developing and implementing disaster recovery processes and plans, such as 356 a long term recovery plan and/or reflecting recovery planning and mitigation 357 measures in the community’s land use planning and management, 358 comprehensive plans, master plans, and zoning regulations. 359 . Rebuilding to appropriate resilience standards in recognition of hazards and 360 threats. 361 . Addressing recovery needs across all sectors of the economy and community, 362 and addressing individual and family recovery activities and unmet needs. 363 . Rebuilding educational, social, and other human services and facilities 364 according to standards for accessible design. 365 . Reestablishing medical, public health, behavioral health, and human services 366 systems. 367 . Reconfiguring elements of the community in light of changed needs and 368 opportunities for “smart planning” to increase energy efficiency, enhance 369 business and job diversity, and promote the preservation of natural 370 resources. 371 . Implementing mitigation strategies, plans, and projects. 372 . Implementing permanent housing strategies. 373 . Reconstructing and/or relocating, consolidating permanent facilities. 374 . Implementing economic and business revitalization strategies. 375 . Implementing recovery strategies that integrate holistic community needs. 376 . Implementing plans to address long-term environmental and cultural 377 resource recovery. 378 . Ensuring there is an ongoing and coordinated effort among local, state, tribal, 379 and federal entities to deter and detect waste, fraud and abuse. 380 . Identifying milestones for the conclusion of recovery for some or all non-381 local entities. 382 IV. CORE PRINCIPLES 383 The NDRF is guided by core principles derived from hundreds of stakeholder 384 comments. They are: 385 386 . Individual & Family Empowerment – Recovery is not only about restoration of 387 structures, systems and services – although they are critical. A successful 388 recovery must also be about individuals and families being able to rebound from 389 their losses, and sustain their physical, social and economic well-being. The 390 shared recovery objective should always be to empower people to recover from 391 disaster by assisting with compassion and respect; and by providing them the 392 opportunities, tools and resources to meaningfully participate in the recovery 393 process and contribute to their individual, family and overall community-wide 394 recovery. Observing this principle may be especially important for individuals 395 with disabilities, access and functional needs; children; the elderly; and 396 members of underserved communities. 397 398 . Leadership & Local Primacy – Encourage informed and coordinated leadership 399 throughout all levels of government, sectors of society, and phases of the 400 recovery process through collaboration and communication support. Recognize 401 that tribal, state, and local governments have primary responsibility for the 402 recovery of their communities and play the lead role in planning and authority 403 for managing all aspects of community recovery. This is a basic, underlying 404 principle that should not be overlooked by federal, state, and other disaster 405 recovery managers in their eagerness to assist. However, the federal 406 government is a partner and facilitator in recovery and must be prepared to 407 manage when the disaster impacts areas of primary federal jurisdiction or 408 national security, and assist should tribal or state and local governments be 409 overwhelmed by a large-scale or catastrophic event. 410 411 . Preparation for Recovery – Prepare for recovery prior to a disaster to establish 412 a higher state of resilience and speed for recovery planning and assistance 413 delivery. Development of recovery coordination structures and training of 414 recovery personnel are vital to enhancing recovery preparedness. A critical 415 component to preparedness is also pre-disaster recovery planning. Involve all 416 stakeholders to ensure a coordinated and comprehensive planning process, 417 appreciating that all plans evolve during execution but the relationships and 418 understanding developed during the planning process increase the ability for 419 collaboration and unified decision-making. Identify in advance the process and 420 procedures that will be used to make decisions and metrics for monitoring 421 progress. 422 423 . Partnership & Inclusiveness – Promote proactive partnerships and 424 collaboration. Partnerships and inclusiveness are vital for ensuring that all 425 voices are heard from all parties involved in disaster recovery, and that the most 426 innovative and relevant solutions are considered. This is especially critical at the 427 community level, where non-governmental partners in the private and non-428 profit sectors (i.e., local businesses, owners and operators of critical 429 infrastructure and key resources; and voluntary, faith-based and community 430 organizations, foundations, philanthropic groups and academic institutions) play 431 a significant role in meeting local needs. Collaboration can drive innovation 432 through fostering and strengthening community relationships with multiple 433 actors as well as multi-jurisdictional coordination. The recovery process should 434 be facilitated through the inclusion of individuals with disabilities and others 435 with access and functional needs, advocates of children, the elderly, and 436 members of underserved communities. Cultural competency, diversity, and 437 sensitivity should be addressed and respected at all levels and at all times. 438 439 . Communications - Promote clear, consistent, culturally-sensitive, and frequent 440 communication of critical recovery information through a process that is 441 inclusive of and accessible to the general public and stakeholders, including 442 people with disabilities and with limited English proficiency; manage 443 expectations throughout the process, and support the development of local, 444 state, and tribal communication plans; ensure stakeholders have a clear 445 understanding of the assistance they are eligible for and the roles and 446 responsibilities they must be accountable for; make clear the actual pace, 447 requirements, and time needed to achieve recovery. 448 449 . Unity of Effort – Coordinate and focus all available disaster recovery assistance 450 resources toward an agreed-upon set of recovery processes and priorities 451 developed at the community level. Support a transparent, inclusive, and 452 accessible process through which community members, leaders, and supporters 453 come together to examine options, debate alternatives, address conflicts, and 454 make the decisions necessary to build community consensus and unity on their 455 shared recovery priorities. 456 457 . Timeliness & Flexibility - Uphold the value of timeliness, efficiency and 458 flexibility in coordinating and delivering recovery activities and assistance. 459 Minimize delays and opportunity losses; sequence recovery decisions to 460 promote coordination, avoid potential conflicts, build confidence and ownership 461 of the recovery process among all stakeholders; and ensure recovery plans, 462 programs, policies, and practices are adaptable to meet any unforeseen, unmet 463 and evolving recovery needs. 464 465 . Resilience & Sustainability – Promote implementation of redevelopment 466 fundamentals and practices that minimize the community’s risk to all hazards, 467 and strengthen the community’s ability to withstand and recover from future 468 disasters. Engage in a rigorous assessment and understanding of risks and 469 vulnerabilities that might endanger the community or pose additional recovery 470 challenges. Promote implementation of the NIPP risk management framework 471 to enhance the resilience and protection of critical infrastructure against the 472 effects of future disasters. Incorporate mitigation strategies, critical 473 infrastructure, environmental and cultural resource protection, and 474 sustainability practices not only in reconstructing the built environment, such as 475 housing and infrastructures, but also in revitalizing the economic, social and 476 natural environments. 477 V. RECOVERY ROLES & RESPONSIBILITIES 478 Successful recovery depends on all stakeholders and every level of government 479 being prepared to work collaboratively and effectively prior to and after a disaster. 480 This section describes the recovery roles and responsibilities of individuals and 481 families; businesses; voluntary, faith-based and community organizations; and local, 482 state, tribal, and federal governments. 483 484 Individuals and Families 485 Individuals and families need to prepare for and manage their own recovery to the 486 extent possible. Those who prepare not only reduce personal stress and enhance 487 their ability to undertake their own recovery, but can also shape the future of their 488 community by their resilience to an event and the choices they make during the 489 recovery process. To the extent that individuals and families can adequately 490 prepare for disasters and participate in recovery efforts, the more successful the 491 recovery outcomes will be. Resources to help families prepare are available through 492 websites and publications of local voluntary organizations that are active in 493 disasters like the American Red Cross, state and local emergency management 494 agencies, and FEMA. 495 496 The responsibilities of individuals and families in pre- and post disaster situations 497 may include, but are not limited to: 498 499 Individuals and Families Pre-Disaster Checklist . Learn about the natural hazards they are exposed to and measures they can take to protect themselves. . Mitigate vulnerabilities of their homes, such as adding hurricane shutters, maintaining a defensible firebreak around the house, and pruning overhanging tree limbs. . Put together individual/family disaster preparedness and recovery plans. . Purchase and maintain appropriate and adequate level of hazard insurance. . Maintain cash reserves on hand since banking services are usually unavailable in the event of a disaster. Individuals and Families Post-Disaster Checklist . Prioritize recovery needs and goals. . Implement individual and family recovery plans. . Participate in post-disaster community recovery planning if possible. . Make contact with recovery resource organizations and apply for assistance. . Engage in specific recovery project activities. . Reach out to others who may need assistance; assist them in obtaining planning guidance and tools. . Participate in community disaster preparedness and recovery planning processes. . Reach out to others in the community who may need assistance through citizens to citizens and other community outreach initiatives. 500 Private Sector - Business Community, and Critical Infrastructure Owners and 501 Operators 502 503 Businesses play a critical role in the stabilization and revitalization of the local 504 economy as employers, service and goods providers, investors, developers, planners 505 and in other economic roles needed to achieve a sustainable recovery and 506 prosperous community. Businesses are often severely impacted by disasters and 507 need assistance quickly to rebuild and reopen. But businesses are also partners, 508 contributors and leaders in long term recovery and must be involved in the planning 509 and recovery processes from the outset. Many local businesses are owned by 510 members of the community. The owners understand a community’s needs, and 511 their business operation is crucial in restoring the economic health of a community. 512 513 The private sector plays a critical role in establishing public confidence immediately 514 after a disaster. If local leadership and the business community have worked 515 together and there is a recovery plan in place, there is a greater propensity for the 516 public to have confidence in the impacted community’s marketplace. 517 518 Additionally, the private sector owns the vast majority of the nation’s critical 519 infrastructure and plays a major role in the recovery of a community or a region. 520 Disruptions of critical infrastructure may have a regional or even national 521 deleterious effect. To expedite critical infrastructure restoration, CIKR owners and 522 operators coordinate with local organizations, as appropriate, and participate in 523 national-level coordination in accordance with the NIPP and the processes outlined 524 in the CIKR Support Annex to the NRF. The DHS Office of Infrastructure Protection 525 is responsible for leading efforts and establishing priorities across the federal 526 government and coordinating with State, local, tribal, territorial, and private sector 527 partners to mitigate risk and enhance the resilience of critical infrastructure.) 528 529 It is critical that disaster recovery officials recognize the importance of partnership 530 and create coordination opportunities during pre-disaster planning with private 531 sector leaders. The resources and capabilities of the private sector, including 532 utilities, banks, and insurance companies, can play an important role in encouraging 533 mitigation and creating greater resilience in a community. For example, local banks 534 can create products to encourage individuals and businesses to be financially 535 prepared for disasters and work with small businesses (to which the bank lends) to 536 develop business continuity plans. Insurance companies can educate community 537 members on risks, reach out to underserved populations, and work with State and 538 local governments to find ways to provide coverage for low-income families and 539 small businesses. 540 541 As a major player in recovery efforts, businesses and critical infrastructure owners 542 and operators have an important responsibility to improve disaster resilience by 543 mitigating risks and increasing disaster preparedness. Small or large businesses at 544 risk of hazards should adopt and exercise business continuity plans to minimize 545 costly operation disruptions and to purchase adequate insurance policy to obtain 546 financial resources to rebuild damaged facilities. Businesses that do not plan for 547 disruption are more likely to go out of business after a disaster than those that do. 548 549 Private sector responsibilities in pre- and post disaster situations may include, but 550 are not limited to: 551 552 Private Sector Pre-Disaster Checklist . Develop a business model that is adaptable to operate in a disaster event. . Identify areas beyond the physical location of the business where disasters can affect business operations, including interruptions in logistics and supply chains. . Develop, test, and implement business continuity and restoration plans. Plans should take into account worker safety and health and potential employee unavailability or attrition due to disaster. . Educate and train employees to practice business mitigation and preparedness activities. . Carry adequate insurance to rebuild damaged facilities or survive a disruption of work. . Incorporate mitigation measures in design and construction for place of employment. . Mitigate risks from disasters by relocating from hazardous areas, Private Sector Post-Disaster Checklist . Communicate status of operations, supply chain and restoration challenges/timelines. . Communicate needs and be informed of overall recovery progress. . Mobilize employees or community to utilize available resources and reopen for operations to continue to provide essential goods and services to the community. . Support employees impacted by the disaster. . Take measures to ensure worker safety and health during recovery work. . Form business recovery groups or task forces to assist one another and to communicate more effectively with government and community leaders. . Research available funding sources and types of funding; understand the application processes of assistance programs. . Assist small and local businesses to hardening facilities, and elevating critical infrastructure. . Participate and assume a leadership role in local recovery planning; articulating anticipated needs in a disaster, as well as resources available to support recovery. . Develop network to strengthen coordination between businesses, government entities and community organizations. . Provide training for business leaders in the community to assist with the business recovery process. acquire assistance. . Donate goods and services, such as funneling resources through nonprofit organizations and providing direct services. . Provide technical assistance for the implementation of temporary distribution system of essential goods and services. . Provide facilities, i.e. office space, bathrooms, and sleeping accommodations, to local governments or groups. 553 Non-Profit Sector 554 555 The non-profit sector plays a vital role in the recovery of impacted communities. 556 Non-profits include voluntary, faith-based and community organizations, charities, 557 foundations, philanthropic groups, as well as professional associations and 558 academic institutions. Members of these organizations are often stakeholders 559 themselves, in addition to acting as advocates for or as assistance providers to other 560 members of the community. The formidable value of the work of volunteers and 561 these organizations' expertise reside in recovery planning, case management 562 services, volunteer coordination, technical and financial support, and project 563 implementation. 564 565 Non-profit sector support is provided by a range of organizations, from small locally 566 based non-profits to organizations with national reach that have extensive 567 experience with disaster recovery. Non-profits can directly supplement and “fill 568 gaps” where government authority and resources cannot be applied. As resourceful 569 fundraisers, grantors, and investors, they can inject needed financial resource to 570 meet recovery needs and obligations that otherwise cannot be funded by a federal 571 program due to legal limitations. 572 573 Many organizations originate from or stay behind in the impacted community to 574 continue to mobilize support and provide services. As such, particularly in a large 575 scale disaster, they play a critical role in the implementation of an inclusive, locally-576 led recovery organization and process during the transition as federal recovery 577 support recedes and local leadership and community recovery organizations 578 complete the mission. 579 580 Non-profit organizations are critical for ensuring participation and inclusion of all 581 members of the impacted community. Many non-profits act as advocates for or as 582 assistance providers to a wide range of members in the community, such as 583 individuals with disabilities and others with access and functional needs, children, 584 elderly, and underserved populations. It is crucial that these individuals and 585 families receive timely recovery information, participate in the recovery process, 586 and understand and have access to resources to achieve recovery. 587 588 Non-profit sector responsibilities in pre- and post disaster situations may include, 589 but are not limited to: 590 591 Non-Profit Sector Pre-Disaster Checklist . Build relationships with the emergency managers and other recovery officials in their communities to have an active voice in the recovery process. . Identify leaders and other representatives from organizations representing individuals with disabilities and others with access and functional needs, children, elderly, and underserved populations to participate in the local long-term recovery committees (LTRCs). . Co-host stakeholder workshops in various accessible locations in the community to determine priority issues for recovery from the neighborhoods that make up the community. . Incorporate mitigation in design and construction for place of employment, and promoting mitigation to employees. . Build the lessons –learned from disaster efforts into the planning process for the State Voluntary Organizations Active in Disaster (VOAD). . Actively participate in local pre- disaster recovery planning, articulating resources and Non-Profit Sector Post-Disaster Checklist . Provide specific relief aid, recovery resources, and support services to vulnerable and underserved groups of individuals and communities, as necessary. . Provide functional need support services/disability related assistance to maintain independence. . Provide emotional and spiritual care post-disaster including training for care-givers. . Provide case management expertise including training to support individuals’ implementation of their disaster recovery plans. . Provide housing repair and reconstruction services that comply with applicable architectural standards. . Communicate needs and capabilities to state and local authorities. . Coordinate with the federal and state Voluntary Agency Liaison (VAL). . Participate in post-disaster community planning process. . Provide advocacy services for disaster-affected communities to help with the complexities of governmental and other recovery programs. capabilities and establishing partnership and support linkages. . Ensure operations comply with federal civil rights laws, including meeting architectural standards for sheltering operations, and implementing nondiscrimination provisions in funding usage and dissemination. . Promote partnership among all NGOs conducting disaster recovery work. . Provide leadership in the incorporation of Long Term Recovery Committees into other NDRF coordinating elements to address unmet needs of families and individuals. . Communicate with state agencies regarding state program information for recovery. . Serve as subject matter experts on the subject of unsolicited donated goods and unaffiliated volunteers throughout the post-disaster operation. 592 Local Government 593 594 The local government has the primary role in planning for and managing all aspects 595 of its community’s recovery. State and federal officials look to local governments to 596 clearly articulate their recovery priorities and develop plans in order to optimally 597 support local communities. 598 599 The majority of mitigation and resilience measures are adopted and codified at the 600 local level. While there are federal and state standards, it is sometimes the 601 prerogative of the local government to adopt and enforce them. Examples include 602 adopting the National Flood Insurance Program (NFIP) and enforcing appropriate 603 building codes. 604 605 Local governments can also lead the community in preparing mitigation and 606 recovery plans, raising hazard awareness, and educating the public of available tools 607 and resources to enhance future resilience (e.g. Chapter 7 of the ADA Best Practices 608 Tool Kit, concerning emergency preparedness and people with disabilities). 609 Government agencies should remember they also play a role as an employer and 610 need to have their own disaster plan to protect and assist their employees. 611 612 Local government responsibilities in pre- and post disaster situations may include, 613 but are not limited to: 614 615 Local Governments Pre-Disaster Checklist . Lead local preparedness and pre- disaster recovery planning. . Facilitate preparation of pre-event disaster recovery plans commensurate with local risk and vulnerability for public organizations, private entities and individual households. . Lead a pre-disaster recovery planning process that is inclusive and accessible and facilitates emergency management practices that comply with all applicable laws, including civil rights laws. . Articulate recovery needs and priorities to facilitate support and collaboration with the state and federal governments, private and non-profit sector organizations. . Establish a process for reviewing, validating, and setting planning priorities. . Pre-identify a structure for managing recovery, including a local recovery coordinator or lead for managing recovery. . Establish agreements and mechanisms to address surge capacity needs. . Ensure plans, agreements, and mechanisms address the provision of disability related assistance & functional needs support services, . Ensure recovery-related dialogue includes and is accessible to all community groups. . Ensure plans incorporate worker safety and health. Local Governments Post-Disaster Checklist . Organize, implement, modify and develop recovery plans as needed. . Ensure integrated efforts across government offices, the private sector, and nongovernmental organizations during the implementation phase of recovery projects and activities. . Lead effort in restoring local critical infrastructure and essential services, retaining businesses, and redeveloping housing that have been damaged, disrupted or destroyed by the disaster. . Lead outreach effort to all its constituents to support an inclusive post-disaster recovery planning process. . Manage recovery rebuilding in a manner which optimizes risk reduction opportunities and complies with standards for accessible design. . Lead local recovery planning effort to establish recovery vision and priorities. . Establish metrics to evaluate recovery progress and achievement of local disaster recovery objectives. . Communicate and coordinate with other levels of government involved in the recovery. . Receive and manage private, state, and federal grant resources; ensure effective and nondiscriminatory use of funds; and enforce accountability and compliance. . Ensure the safety and health of workers. State Government 616 States manage and drive the overall recovery process and play a key role in 617 coordinating recovery activities within the state and with other levels of 618 government. As the basis for all legal authority within a state, state governments 619 wield influence over many tools to enable disaster recovery through legislation, 620 regulation, and management of state and some federal resources. 621 622 States act as a conduit for some key federal recovery assistance programs to the 623 local governments. In addition to managing federal resources, state governments 624 may develop programs or raise money (i.e. issue bonds) to finance recovery 625 projects. Where there are additional needs to be met, they can reassign existing 626 internal resources to streamline and expedite recovery, such as forming a new or ad 627 hoc state recovery agency. 628 629 State government responsibilities in pre- and post disaster situations may include, 630 but are not limited to: 631 632 State Governments Pre-disaster Checklist . Lead state-wide pre-disaster recovery and mitigation planning efforts. . Establish and manage requirements and incentives for pre-event disaster recovery preparedness and planning as well as hazard mitigation actions. . Identify recovery activities that are either primarily the responsibilities of state government or beyond the capabilities and authorities of local governments. . Provide technical assistance and training to local governments and NGOs on state plans, programs, and other resources for disaster recovery. . Implement and enforce applicable laws and regulations to protect the rights of citizens to ensure physical, programmatic and communications access to preparedness activities and services. . Establish and aid enforcement of building and accessibility codes and State Governments Post-Disaster Checklist . Coordinate with local, regional, tribal, and federal governments and agencies, private businesses and non- profit organizations to coordinate recovery planning and assistance to impacted communities. . Receive, record, and manage federal grant resources; ensure efficient, nondiscriminatory and effective use of the funds; and enforce accountability and legal compliance. . Oversee volunteer and donation management and coordinate with federal Voluntary Agency Liaison. . Facilitate and oversee a case management process that is accessible and inclusive. . Assist local governments and communities with indentifying recovery resources. . Establish metrics in coordination with the impacted communities to evaluate recovery progress and achievement of statewide disaster land use standards, which can reduce vulnerability to future disasters. . Ensure safety and health of state workers. . Provide advice to employers and workers on worker safety and health. recovery objectives. . Develop and implement strategies for raising and leveraging recovery funds through private investments, charitable donations, and state sources such as emergency funds, tax, fees and bonds that are within the state’s authority to seek. . Communicate timely information to the public and manage expectations, in coordination with local, tribal and federal stakeholders. . Enact new or exemptions to existing state laws and/or regulations to promote recovery activities such as home reconstruction. . Coordinate with federal law enforcement to prosecute disaster- related fraud, waste, discrimination, and abuse, and recover lost funds. . Ensure safety and health of state workers. . Monitor oversight of worker safety and health. 633 Tribal Nations 634 Tribal governments, as sovereign nations, govern and manage the safety and 635 security of their lands and citizens. Many tribal nation borders cross multiple 636 counties and states presenting a unique challenge in planning, response, and 637 recovery efforts. While resources in other communities and governments may be 638 available and easily accessible, such is not the case in many tribal nation 639 communities. Understanding these basic facts assists federal, state, and local 640 governments when working with the sovereign tribal nations to develop their long-641 term community recovery plans and implement their recovery. 642 643 The federal government is required, to the extent practicable, to engage in 644 meaningful consultation with tribal nations prior to the finalization of policy or 645 program implementation. State and local governments are encouraged to engage 646 with tribal governments as well. (See Executive Order 13175, Consultation and 647 Coordination with Indian Tribal Governments.) The NDRF supports tribal 648 leadership in preparedness and recovery planning. 649 650 For pre- and post disaster situations, tribal governments may seek to: 651 652 Tribal Government Pre-Disaster Checklist . Pass tribal legislation that protects tribal sovereignty and provides for cooperation and partnership with other governments. . Preserve and protect cultural resources, sacred sites, and traditional lands. . Develop an acceptable tribal mitigation plan. . Facilitate communication between the tribes and local governments by informing the latter of cultural differences, tribal distinctions, and best means for communicating within the tribal hierarchy. . Prepare a pre-disaster plan that outlines responsibilities and allows for the creation of a Tribal Recovery Coordinator position or equivalent and an organizational structure to manage recovery assistance application and allocation. Tribal Government Post-Disaster Checklist . Define the tribal community’s recovery goals in a culturally and acceptable way. . Partner and cooperate with local, state, regional, and federal agencies to assess needs, resources, and recovery capabilities. . Appointing a tribal recovery coordinator or equivalent, and establishing an organizational structure to manage recovery assistance application and allocation. . Establish metrics to evaluate recovery progress and achievement of tribal disaster recovery objectives. . Partner with other governments to provide timely information and manage expectations. . Participate in long-term recovery planning committees with local, state, and federal partners. . Coordinate with federal, state, and local governments to ensure and expedite assistance. . Update and implement pre-disaster recovery and mitigation plans. . Establish a system to apply, receive, and manage recovery grant resources unique to tribes. 653 Federal Government 654 The primary role of the federal government is to support state and tribal 655 governments with their responsibilities to manage and lead the disaster recovery. 656 When a disaster occurs which exceeds the capacity for local or state resources – or 657 impacts federal property or other areas of primary federal jurisdiction or national 658 security interests – the federal government uses the NDRF to engage all necessary 659 department and agency capabilities to support local recovery efforts. The federal 660 government’s supporting role is especially important during the early weeks after a 661 large-scale or catastrophic disaster, when many state and local governments are 662 overwhelmed with response and relief efforts. The duration and extent of federal 663 support will be commensurate to the scale and enduring impacts of the disaster. 664 The federal government’s disaster recovery management and support systems 665 should be scalable and adaptable so changes can be made quickly and effectively to 666 meet the needs of the specific disaster. 667 668 Federal agencies may be requested to provide federal-to-federal support or other 669 support. Federal agencies without long-term recovery missions may directly or 670 indirectly contribute to meeting long-term recovery needs of affected communities 671 by delivering assistance provided under their steady state authority. The federal 672 government coordinates its activities to facilitate adaptations and adjustments 673 consistent with other competing requirements, including other disaster response 674 and recovery needs. 675 676 Prior to disaster, the federal government also has a responsibility to assist state and 677 local governments to prepare for recovery by providing guidance and tools for 678 planning and preparedness activities. Although disasters and localities vary so 679 widely that most recovery planning must transpire at the local level, some 680 centralized planning and federal guidance or standards are necessary to ensure 681 coordination of outside resources and assistance. Large-scale and catastrophic 682 events (e.g. the Midwest floods of 1993 and 2008 or a potential New Madrid 683 earthquake) often cross several municipal, county, tribal, or even state jurisdictions, 684 and national coordination is necessary to ensure that government agencies are 685 working together to the optimal benefit of those impacted. The federal government 686 can also use its national outlook to promote regional planning. 687 688 From the federal perspective, a successful recovery introduces an additional 689 responsibility concerning the “return” on federal investment. The federal 690 government is responsible for ensuring that federal tax dollars invested to assist a 691 community’s recovery is done, to the extent practicable, in a manner that reduces or 692 eliminates future risk from hazards, increases resilience, and is consistent with 693 national laws and policies. Government agencies should remember they also play a 694 role as an employer and need to have their own disaster plan to protect and assist 695 their employees. 696 697 Federal government responsibilities in pre- and post disaster situations may 698 include, but are not limited to: 699 700 Federal Government Pre-Disaster Checklist . Promote recovery preparedness by providing guidance to tribal, state Federal Government Post-Disaster Checklist . Deploy a Federal Recovery Coordinator when appropriate and and local governments and NGOs for pre-disaster recovery planning. . Encourage use of steady state grant programs for pre-disaster recovery planning and preparedness activities. . Conduct recovery preparedness planning, training, and exercises based on federal agency roles and responsibilities in disaster recovery. . Provide incentives to grant recipients to incorporate disaster risk reduction, sustainability and natural and cultural resource protection techniques in any land use, structural or infrastructure projects. . Provide leadership for national catastrophic disaster recovery planning with basic parameters and minimum standards for recovery planning initiatives. . Facilitate sharing of planning best practices and recovery plans adopted by various states and local jurisdictions. . Develop national metrics for evaluating pre-disaster preparedness of physical infrastructures and facilitate local jurisdictions, corporations, building owners, and major institutions to develop their recovery preparedness plans accordingly. . Conduct education and outreach for disaster recovery programs and resources to potential recipients and other stakeholders. . Foster a culture of open government by incorporating the values of transparency, participation, and collaboration into programs, planning, and daily operations. . Ensure continuous improvement by establish recovery coordination structure in close collaboration with affected state, tribal, and Local governments. . Provide technical and financial assistance with clarity and efficiency, consistent with existing authorities, to tribes, local and state governments, and the private sector. . Adhere to the principle that the federal government is to support and supplement, not substitute or supplant local and state leadership. . Communicate timely information to the public and manage expectations in coordination with local, tribal, and other stakeholders. . Monitor and make necessary adjustments to federal assistance programs and their delivery to more appropriately and timely address recovery needs of the affected states and local communities. . Ensure transparency and accountability of federal expenditures which aid disaster recovery. . Participate in and support state and local recovery planning efforts as requested and needed. . Coordinate federal recovery efforts with private and non-profits organizations in cooperation with state and local officials. . Facilitate collaboration and partnerships in disaster recovery management. . Ensure safety and health of workers. evaluating program effectiveness; regulatory or statutory barriers; incorporating lessons learned and best practices; leveraging innovative technologies to increase efficiency, and proposing and enacting reform changes as necessary. . Ensure safety and health of workers. VI. ACHIEVING DISASTER RECOVERY 701 Each community will define successful recovery outcome differently based on its 702 circumstances, challenges, recovery visions and priorities. One community may 703 characterize success as the return of its economy to pre-disaster conditions; while 704 another may see success as the opening of new economic opportunities. Although 705 no single definition of a successful recovery can fit all situations, successful 706 recoveries do share a common condition in which: 707 . The community successfully meets its priorities to overcome the impacts of 708 the disaster, reestablishes an economic and social base that instills 709 confidence in the local citizens and businesses regarding the community 710 viability, and rebuilds the community to be more resilient from future 711 disasters. 712 713 Recovery cannot be defined simply by the community’s return to pre-disaster 714 circumstances when these circumstances are no longer sustainable, competitive, or 715 functional to the post-disaster community. In this light, the impacted community 716 should be informed and evaluate all alternatives and options, and avoid simple 717 restoration of an area that may not be sustainable. 718 719 Success Factors 720 Factors likely to stimulate a successful recovery are effective: 721 722 1. Citizen engagement, public participation, and public communications 723 2. Decision-making and coordination 724 3. Coordination and integration of community recovery planning processes 725 4. Recovery management 726 5. Financial/Acquisition management 727 6. Organizational flexibility 728 729 Citizen Engagement, Public Participation, and Public Communications 730 . All stakeholders have collaborated to maximize the use of available resources to 731 rebuild housing, infrastructure, schools, businesses, access and functional 732 support services, and the social-cultural fabric of the impacted community in a 733 resilient manner. 734 . All voices within the community have had an opportunity to participate, and 735 there is clear evidence of transparency and accountability. 736 . Communities have created clear, implementable and timely post-disaster 737 recovery plans that incorporate local opinions in order to meet the needs of 738 communities in a more holistic fashion and to maximize the provision and 739 utilization of recovery resources. 740 . Public confidence has been increased by early and continuous communication to 741 citizens on various recovery programs, the commitment to short, intermediate, 742 and long-term recovery as well as the overall recovery progress. 743 744 Decision-Making and Coordination 745 . All organizations providing leadership or assistance for recovery have 746 established realistic metrics (preferably during pre-disaster planning and 747 updated as soon as possible post-disaster) for tracking progress, ensuring 748 accountability, and reinforcing realistic expectations among stakeholders. 749 . Governments, businesses, non-profits and individual community members - 750 especially the local community and local leadership - have examined recovery 751 alternatives, addressed conflicts, and made informed and timely decisions on 752 how best to bring forth the recovery of the impacted community. 753 754 Coordination and Integration of Community Recovery Planning Processes 755 . Pre-existing recovery plans have been developed to improve the speed and 756 quality of post-disaster recovery decisions. 757 . A community has a process and criteria for transparently identifying and 758 prioritizing key recovery actions and projects. 759 760 Recovery Management 761 . Well-established, pre-disaster partnerships at the local, state, tribal and federal 762 levels help to drive a successful recovery. 763 . Leverage and coordinate disaster and steady-state public and private assistance 764 programs to accelerate the recovery process and avoid duplicative efforts. 765 . The ability to seek out, interface, and coordinate successfully with outside 766 sources of help, such as surrounding governments, foundations, universities, 767 corporations, and non-profits, is a key element in the rapid recovery of 768 communities. 769 . Surge staffing is readily available to support the increased workload of long-770 term recovery areas, such as planning, communications, grant writing, and 771 management. 772 773 Financial/Acquisition Management 774 . Access to broad and diverse funding sources is critical to financing recovery 775 efforts. 776 . Knowledge of external programs and the administration thereof will greatly aid 777 recovery progress. 778 . Flexibility of program funds and resources is critical to finance planning, 779 recovery management, program administration, and implementation in a post-780 disaster environment. 781 . Recovery management programs must have the capability to develop and 782 maintain adequate financial monitoring and accounting systems for new/large 783 levels of investment, to include systems that detect and deter fraud, waste, and 784 abuse. 785 . Maximize the use of local businesses in federal recovery expenditures to 786 promote local economic development and by contracting with firms located in 787 the declared area. 788 789 Organizational Flexibility 790 . Recovery structures at all government levels should evolve, adapt, and develop 791 new skills and capacities to address the changing landscape of post-disaster 792 environments. 793 . Functional and effective intergovernmental relations can influence the efficiency 794 of recovery process. 795 . The ability to change laws, regulations, and policies can enhance government’s 796 adaptability to govern in unforeseen events. 797 . Flexible staffing and management structure can enhance the adaptability of the 798 governmental structure. 799 . Increased pre-disaster partnerships can help reduce or avoid the challenges of 800 establishing new partnerships in a post-disaster environment. 801 . Organizational flexibility should not reduce or limit the integrity and 802 accountability of taxpayer-funded programs. 803 804 Tools/ Metrics 805 Measuring and communicating the progress of recovery can: increase public 806 confidence in the recovery process by promoting transparency, accountability, and 807 efficiency; allow local leadership to identify on-going recovery needs and engage 808 partners that can provide assistance and resolve problems; and serve as a feedback 809 mechanism for how to improve and adjust recovery strategies and activities. 810 In considering metrics, each community is encouraged to: 811 . Recognize that overall recovery success depends upon interaction of a wide 812 range of public/private programs and initiatives, good planning, local 813 capacity and leadership, effective decision-making, and building of public 814 confidence. Therefore, metrics can have variables not attributable to any one 815 program or one government agency. 816 . Establish metrics that track overall recovery of individuals, as well as the 817 reconstruction and redevelopment of infrastructure, economy, essential 818 health/social/community services, and government functions. 819 . Recognize that metrics are needed to measure the recovery process 820 holistically, not just per a singular activity such as dollars spent or assistance 821 delivered on a program-by-program basis. 822 . Leverage pre-disaster recovery preparation to establish recovery 823 assumptions and community “baseline” that can help launch post-disaster 824 recovery planning, support implementation, and measure recovery progress. 825 . Ensure that pre-disaster recovery planning is integrated with the 826 community’s hazard mitigation planning to capitalize on opportunities to 827 minimize the community’s risk to all hazards, and strengthen the 828 community’s ability to withstand and recover from future disasters. 829 . Select metrics that reflect the core principles outlined in Chapter IV of this 830 framework; apply to recovery priorities and resource needs; and set realistic 831 expectations and milestones for its community members, stakeholders, and 832 supporting agencies. 833 . Develop the metrics in coordination with local, state, tribal and federal 834 partners. To ensure full citizen participation, include persons with 835 disabilities and others with access and functional needs, members of 836 underserved populations, and advocates representing the unique needs of 837 children. 838 . Leverage technology and systems innovation to achieve goals to create 839 greater information sharing, accountability, and transparency to the extent 840 possible. 841 . Ensure continuous improvement by evaluating effectiveness; incorporating 842 lessons learned and best practices; and restructuring as necessary. 843 844 Government agencies and private organizations that provide assistance should also 845 have metrics of their own for tracking their coordination and assistance efforts, 846 ensuring accountability, and enabling prompt adjustments to meet ongoing and 847 changing needs. The suggested considerations listed above may also be applied for 848 developing these metrics. 849 VII. RECOVERY COORDINATORS 850 Federal Recovery Coordinator 851 When activated, the Federal Recovery Coordinator (FRC) facilitates federal 852 assistance coordination and collaboration with the local/state/tribal governments, 853 private sector, and voluntary, faith-based and community organizations. The FRC 854 partners with and supports the State/Tribal Recovery Coordinator (see next page) 855 to facilitate disaster recovery in the impacted state or tribal nation. 856 857 The FRC’s responsibilities in a post-disaster situation may include, but are not 858 limited to: 859 . Developing a strategic approach for coordinating federal assistance and 860 policies. The intent is to provide timely, sufficient, and effective federal 861 assistance to the impacted state or tribal nation to support its disaster recovery. 862 . Coordinating federal assistance to support community recovery planning. 863 The goal is to supplement local capacity with needed expertise to conduct a 864 successful planning process and develop a recovery plan for federal support that 865 is publicly supported and actionable. 866 . Managing the Recovery Support Function (RSF) deployments, operations, 867 and activities. The objective is to focus federal resources on the most pertinent 868 recovery needs and to promote partnerships between the federal government 869 and stakeholders at the local, state and tribal levels. 870 . Facilitating federal funding streams and solutions to assistance gaps and 871 overlaps. The intent is to maximize the benefit from and ensure timely 872 distribution of federal funds that an impacted community is qualified to receive, 873 to help prevent recovery delays and possible duplication of assistance. 874 . Working with the impacted community to establish relevant recovery 875 measures. The aim is to support the community in meeting its recovery goals in 876 terms of outcome, milestones, and budget; and to make timely adjustments to 877 the recovery effort if needed. 878 . Working with the impacted community to incorporate mitigation and 879 resilience-building measures into recovery implementation. The desired 880 end state is the recovered community becomes safer, stronger, sustainable, and 881 more resilient from any man-made or natural threats. 882 . Facilitating the development of a unified communication strategy. The 883 objective is to have all stakeholders working in concert to manage expectations 884 and to communicate a clear consistent message to the public, and ensure a 885 communication outreach strategy that is comprehensive, and culturally and 886 linguistically appropriate. 887 . Promoting inclusiveness in recovery. The goal is to increase participation of 888 all people and stakeholders to ensure innovations and solutions that can support 889 recovery are considered, and all voices from the community are heard in the 890 recovery process, including individuals with disabilities, members of 891 underserved populations, and advocates for children so that their needs and 892 contributions are an integral part of the recovery process and outcome. 893 894 Local Recovery Managers & Tribal/State Recovery Coordinators 895 Tribal leaders and state governors are encouraged, as part of their recovery plans, 896 to be prepared to appoint recovery coordinators to coordinate recovery activities. 897 When needed, impacted communities are also encouraged to appoint local recovery 898 coordinators or managers to manage their community recovery activities and work 899 closely with the tribal, state and federal recovery coordinators. 900 901 The key responsibilities for the tribal/state and local recovery managers in a post-902 disaster environment may include, but is not limited to: 903 . Leading and coordinating the establishment and activities of local, state or tribal 904 recovery-dedicated organizations and initiatives. 905 . Working with recovery coordinators/leads at the federal and other levels to 906 facilitate the development of a unified communication strategy. 907 . Determining and communicating recovery priorities to state, federal and other 908 recovery stakeholders and supporters. 909 . Organizing recovery planning processes to fully engage constituents’ input and 910 leading the development of the community’s recovery visions, priorities, 911 resources, capability, and capacity. 912 . Leading the development of their community’s recovery plans and ensuring that 913 they are publicly-supported, actionable, and feasible based on available funding 914 and capacity. 915 . Incorporating critical mitigation, resilience, and accessibility building measures 916 into the community’s recovery plans and efforts. 917 . Ensuring inclusiveness in the community recovery process, including protected 918 classes (e.g., persons with disabilities, limited English proficiency, etc.). 919 . Collaborating with federal and other stakeholders and supporters, such as the 920 business and non-profit communities, to raise financial support (including long 921 term capital investment in local businesses) for their community’s recovery and 922 to resolve potential duplication of assistance. 923 . Coordinating federal and other funding streams for recovery efforts and 924 communicating issues and solutions to recovery assistance gaps and overlaps. 925 . Developing and implementing relevant recovery progress measures and 926 communicating needed adjustments and improvements to applicable 927 stakeholders and authorities. 928 . Working closely with the FRC and recovery leadership at all levels to ensure a 929 well-coordinated and well-executed recovery. 930 VIII. RECOVERY SUPPORT FUNCTIONS 931 The Recovery Support Functions (RSFs) bring together federal departments and 932 agencies – including those not active in emergency response – to collaborate and 933 focus on recovery needs. By organizing long-term recovery into these six 934 manageable components both during steady state planning and when activated 935 post-disaster, relevant stakeholders and experts can effectively be brought together 936 to identify and resolve recovery challenges. 937 938 Additionally, this organizational framework provides a model coordinating 939 structure for stakeholders, such as local governments, businesses, and voluntary, 940 faith-based and community organizations - to organize and request assistance 941 and/or contribute resources and solutions. Together, these RSFs help facilitate local 942 stakeholder participation and promote inter-governmental and public-private 943 partnerships. 944 945 The RSF structure coexists and complements the Emergency Support Functions 946 (ESFs) under the National Response Framework. However, the RSFs are different 947 from the ESFs in that: 948 . Different Players are involved: federal staff in the RSFs may have different 949 skill sets than their colleagues from the same agencies working in the ESFs: 950 for example, the EPA staff active in the RSFs comes not from HAZMAT, but 951 smart growth and watershed planning. In addition, there is no ESF for 952 economic development, or for rebuilding the workforce for schools, 953 hospitals, and other essential service providers. 954 . Different Partners are needed: the RSFs also involve partners in the local, 955 state and tribal governments, private and non-profit sectors that are not 956 typically involved in emergency support functions, but are critically needed 957 in disaster recovery. These new partners may include public and private 958 organizations that deal with permanent housing financing, economic 959 development, and long-term community planning. 960 . Different Approach is used: the process used for facilitating recovery needs 961 to be more exploratory and collaborative in approach, rather than the direct 962 and task approach under the ICS-based ESF system. 963 . Different Time Span: whereas the ESFs typically operate within a time span 964 of weeks, the RSFs are likely to remain active for months to provide disaster 965 recovery support. In the early weeks after a large-scale or catastrophic 966 disaster, both ESFs and RSFs will be activated. As the response resources 967 demobilize, ESFs will demobilize at varying points; whereas the RSFs will 968 ramp up and transition from impact assessment and operational planning 969 activities to more direct support. 970 971 The RSFs primarily coordinate resources – both technical and financial – and work 972 directly with communities through the states at their request. As the level of 973 response activities decline and recovery activities accelerate, the RSFs assume a 974 greater responsibility to organize and coordinate federal assistance. 975 976 This section outlines the key characteristics, goals, tasks, and organizational 977 structure for the RSFs. As with the ESFs, each RSF will develop more detailed 978 supporting guidance and tools for members. It is essential to the success of the 979 Framework that federal partners are able to address their responsibilities across 980 the recovery continuum, including preparedness, mitigation, and development 981 activities as well as post-event stabilization and recovery actions. The development 982 of these RSFs will be an iterative process that may include addressing gaps in 983 authorities and resources. 984 985 Goal & Tasks 986 The goal of the RSFs is to facilitate the identification, coordination, and delivery of 987 federal assistance needed to supplement recovery resources and efforts by tribal, 988 state, and local governments; and to encourage investments and contributions by 989 the business community and individuals, as well as voluntary, faith-based, and 990 community organizations. 991 992 Some primary tasks of the federal agency partners in the RSF during a post-disaster 993 period include: 994 . Strengthening partnerships between federal, tribal, state and local 995 governments and communities with the emphasis on promoting recovery 996 leadership at the community level. 997 . Coordinating and supporting community level disaster impact and recovery 998 needs assessments. 999 . Identifying federal funding and technical assistance to match community 1000 recovery needs and maximize effectiveness of federal assistance through 1001 proper sequencing and leveraging. 1002 . Advising communities of applicable government assistance, eligibility 1003 requirements, compliance requirements, and known limitations due to 1004 funding gaps or regulatory restrictions. 1005 . Providing federal contact(s) for tribal, state and local governments to submit 1006 high-level issues and ideas for improving federal recovery assistance. 1007 . Maintaining good communication throughout the entire recovery process 1008 between the federal government and all other partners. 1009 . Providing technical assistance for setting up state and local recovery 1010 organizations. 1011 . Informing federal department and/or disaster organization leadership of 1012 operational challenges or performance shortfalls and facilitate their 1013 resolutions. 1014 . Advising federal agency leadership of recovery obstacles stemming from 1015 federal policies, programs and processes, including authority and funding 1016 overlaps and gaps that may require additional resources, exemptions, or 1017 Congressional or Executive actions. 1018 1019 These RSF activities assist communities with accelerating the process of recovery, 1020 redevelopment, and renewal. 1021 1022 Organization 1023 The following six Recovery Support Functions would report to the designated FRC 1024 when activated, and enable the federal government to enhance its support to 1025 community recovery: 1026 1027 . Community Planning & Capacity Building 1028 . Economic Development 1029 . Health, Social & Community Services 1030 . Housing 1031 . Infrastructure Systems 1032 . Natural & Cultural Resources 1033 1034 RSF Roles and Responsibilities 1035 1036 Each RSF has a designated coordinator and primary and support agencies pertinent 1037 to the functional area. RSFs with multiple primary agencies designate an RSF 1038 coordinator for the purposes of pre-disaster planning and coordination of primary 1039 and supporting agency efforts post-disaster. The RSF coordinator is the entity with 1040 management oversight for that particular RSF. The coordinator has ongoing 1041 responsibilities throughout the preparedness, response, and recovery phases to 1042 ensure ongoing communication and coordination between primary and support 1043 agencies and to coordinate efforts with corresponding tribal, state, NGO, and 1044 private-sector organizations. An RSF primary agency is a Federal agency with 1045 significant authorities, roles, resources, or capabilities for a particular function 1046 within an RSF. Primary agencies orchestrate federal support within their functional 1047 area for an affected State and may lead interagency field assessment or support 1048 teams as necessary. Support agencies are those entities with specific capabilities 1049 or resources that support the primary agency in executing the mission of the RSF. 1050 Providing support when requested by the FRC or the designated RSF coordinator, 1051 consistent with their own authority and resources, except as directed otherwise 1052 pursuant to sections 402, 403, and 502 of the Stafford Act. 1053 1054 Community Planning & Capacity Building 1055 Mission: Unify capacity-building expertise and support programs from across the 1056 federal government to support local and state governments in restoring and 1057 improving their ability to provide governmental services and organize, plan, manage 1058 and implement long term recovery activities and initiatives. 1059 1060 Outcome: Support community planning and governmental functions that are critical 1061 to recovery but become stressed following large disasters. This includes community 1062 operations (building codes, planning, city management), education systems, public 1063 safety, taxation and governmental financing, judicial system and other programs 1064 that provide support to state, local government and community systems to develop 1065 their recovery capacity. 1066 1067 Proposed Coordinating Agency: DHS/FEMA or HUD 1068 Primary Agencies: DHS/FEMA, HUD, and USDA 1069 Supporting Agencies: HHS, EPA, SBA, DOL, Treasury, CNCS, DOC, DOJ, and DOI 1070 1071 Economic Development 1072 Mission: Integrate the expertise of federal departments and agencies to help states 1073 and jurisdictions rebuild businesses and develop new economic opportunities, with 1074 the goal of creating sustainable, economically-viable communities. 1075 1076 Outcome: Departments and agencies cooperate on workforce development, job 1077 creation and retention, entrepreneurial and business development, equal 1078 opportunity, and other programs that support a community-wide approach to 1079 economic development. These actions will encourage re-investment and facilitate 1080 the private sector lending and borrowing necessary for recovery. 1081 1082 Proposed Coordinating Agency: DOC 1083 Primary Agencies: DOC, DHS, HUD, USDA, DOL, Treasury, and SBA 1084 Supporting Agencies: DOE, DOI, HHS, and EPA 1085 1086 Health, Social & Community Services 1087 Mission: Support the state/tribe/community for a more resilient re-establishment 1088 of essential health/social/community services, in order to restore the health and 1089 well-being of affected people and communities – with particular attention to 1090 children, the elderly, families, people living with disabilities, people with 1091 accessibility and functional needs, and underserved populations. 1092 1093 Outcome: Departments, agencies, nonprofit organizations, and private sector 1094 entities with expertise and/or a role in service delivery, service providers, facilities, 1095 and infrastructure for medical, public health, human/social/community services, 1096 and behavioral health (including mental health and substance abuse) services 1097 collaborate to improve community recovery. Some essential elements of this 1098 recovery include: 1099 1100 . Re-establishing the capacity of public and private health care delivery 1101 and essential services 1102 . Continuity of care for affected individuals 1103 . Continuity of essential services -- health, human/social/community 1104 services, schools, behavioral health, child/elder care, disability related 1105 assistance, and other services 1106 . Reconnection to essential services for displaced populations 1107 . Restoring a sense of community and civic engagement 1108 . Protecting the health of the population and responders from the 1109 longer-term affects of a post-disaster environment. 1110 1111 Proposed Coordinating Agency: HHS 1112 Primary Agencies: USDA, DOC, Dept. of Education, DHS (FEMA & IP), HUD, DOI, 1113 DOJ, DOL, EPA, DVA, CNCS, 1114 Supporting Agencies: DOD, DOE, Treasury, DOT,SBA, and NVOAD, 1115 1116 Housing 1117 Mission: Coordinate federal resources and activities to assist in restoration of 1118 destroyed and damaged housing and development of other new accessible, 1119 permanent housing options, if necessary. 1120 1121 Outcome: Departments and agencies with expertise in long-term housing solutions 1122 work in conjunction with the National Disaster Housing Task Force, as well as the 1123 State-led Housing Task Forces, to assist in bringing together stakeholders with a 1124 focus on reconstructing permanent, including accessible, housing. 1125 1126 Proposed Coordinating Agency: HUD 1127 Primary Agencies: HUD, USDA, DHS/FEMA, Access Board, DOJ 1128 Supporting Agencies: DOC, DVA, SBA, NVOAD, EPA, and HHS 1129 1130 Infrastructure Systems 1131 Mission: Integrate the capability of the federal government to support states and 1132 communities, and other infrastructure owners and operators, to permanently 1133 restore, enhance, mitigate, and ensure the resilience and protection of infrastructure 1134 systems impacted by major and catastrophic disasters. 1135 1136 Outcome: Responsible departments and agencies at all levels of government, and 1137 private sector partners work together to promote a forward looking and holistic 1138 approach that focuses on the relationship of the community with their built and 1139 virtual environment. These efforts will involve government and private sector 1140 partners with expertise in physical and virtual infrastructure systems across all the 1141 infrastructure sectors established in accordance with Presidential directives and the 1142 NIPP. Relevant agencies and partners are those with expertise and programs 1143 related to critical and non-critical infrastructure, including but not limited to: 1144 energy; water; dams; communications; transportation systems;; government 1145 facilities; utilities; sanitation;; engineering;; flood control; and other systems that 1146 directly support the physical infrastructure of communities; as well as facilities that 1147 support community services such as education, emergency services, emergency 1148 medical care, libraries, and public parks. 1149 1150 Proposed Coordinating Agency: TBD 1151 Primary Agencies: USACE, DHS (FEMA & NPPD), DOT, DOE 1152 Supporting Agencies: USDA, DOC, DOD, HUD, HHS, DHS, EPA, DOI, FCC, TVA, GSA, 1153 NRC, Treasury, and Department of Education 1154 1155 Natural & Cultural Resources 1156 Mission Focus: Integrate federal resources and capabilities to help tribal nations, 1157 states, and communities address long-term environmental and cultural resource 1158 recovery needs after major and catastrophic disasters. 1159 1160 Outcome: Departments and agencies work together to provide information and 1161 assistance to communities seeking to preserve or grow natural and cultural 1162 resources. Interdependencies between short-term recovery decisions and long-1163 term environmental impacts are taken into account. Opportunities inherent in 1164 recovery are leveraged to mitigate environmentally or culturally deleterious 1165 practices and development patterns. A systematic, interdisciplinary approach is 1166 used to understand the interdependencies and complex relationships of the natural 1167 and cultural environments. 1168 1169 Proposed Coordinating Agency: DOI 1170 Primary Agencies: DOC, DOI, EPA, and USDA 1171 Supporting Agencies: HUD and DHS/FEMA 1172 1173 Scalability & Adaptability 1174 The RSF coordinating structure is designed to be scalable and adaptable to meet 1175 specific disaster recovery requirements. Each of the six RSFs has a pre-designated 1176 coordinating agency that works with the FRC to promote communication and 1177 collaboration among its federal agency members. This tiered leadership structure 1178 helps to accommodate rapid surge of federal resources that may be needed to assist 1179 in large-scale or catastrophic incidents. Furthermore through these RSFs, federal 1180 resources can be organized into a number of field teams led by the most appropriate 1181 primary agencies to cover multiple localities, and each team can be adapted to 1182 comprise only the RSF functions (or the federal department or agency) that have the 1183 authority, expertise and resources appropriate to the locality assigned. 1184 1185 The RSF is also designed to promote federal coordination with tribal and state 1186 governments. The focus, however, will be on higher level program and policy issues 1187 that may affect the overall tribal and statewide recovery efforts. For instance, the 1188 Infrastructure RSF can easily reorganize its agency members based on the specific 1189 systems and services, such as transportation and communication, to mirror the 1190 organizational and coordinating structures that the state and local governments 1191 may set up for recovery. Although in most situations, the RSF can simply coordinate 1192 and organize its federal agency members to participate in whatever local/state 1193 recovery organizations may be established, such as recovery task forces, while 1194 maintaining the six recovery support function structure. 1195 1196 Inclusiveness 1197 In engaging with disaster-affected communities, the RSFs seek to be inclusive, and 1198 to specifically include and address the needs of individuals with disabilities, those 1199 with access and functional needs, children, the elderly, and members of under-1200 served populations. 1201 1202 The RSFs work closely with local, state, and tribal governments to identify 1203 underserved populations. The RSFs also coordinate with FEMA Tribal Liaisons, 1204 Voluntary Agency Liaisons, Disability Issue Advisors, and other federal offices, 1205 bureaus and programs when necessary. Local NGOs and community groups also 1206 often have excellent relationships with the underserved populations. The FRCs 1207 collaborate with these organizations to ensure that programs are culturally 1208 appropriate and that at risk populations and their needs are identified. 1209 1210 In all actions, FRCs and RSFs seek to ensure that all people have a voice, that 1211 services reach those who need them most, that federal resources are distributed 1212 equitably, and that recovery programs are culturally appropriate. 1213 1214 Resource Information 1215 Each of the RSF member agencies brings a wealth of expertise and programmatic 1216 authorities and resources to the table. An important information source about 1217 various forms of assistance that may be available post-disaster is the Disaster 1218 Assistance.gov online portal. The DisasterAssistance.gov online portal is a tool 1219 available since December 2008 to streamline and otherwise improve the delivery of 1220 Federal disaster assistance. After a disaster, individuals register at the portal. This 1221 provides access to all disaster assistance programs from multiple Federal, State, 1222 local and non-governmental participating agencies as well as program and contact 1223 information for pertinent non-Federal programs. The portal consolidates 1224 information about federally funded forms of assistance, application intake, and 1225 status information into a unified system. The portal continues to be expanded to 1226 include more information and programs. 1227 IX. PLANNING FOR A SUCCESSFUL DISASTER RECOVERY 1228 With proper planning, a proactive and well-orchestrated recovery process can be 1229 implemented. Preparedness initiatives help guide the recovery process to 1230 effectively and efficiently reach a community’s disaster recovery goals. Both pre- 1231 and post-disaster recovery planning are critical for communities to develop 1232 resilience and to recover from disasters in a successful and timely manner. 1233 1234 Pre-disaster Planning 1235 Pre-disaster recovery planning enables tribal nations, states, regions, and local 1236 jurisdictions to effectively direct recovery activities and expedite a unified recovery 1237 effort. Pre-disaster plans provide a common platform to guide recovery decisions 1238 and activities. Furthermore, pre-disaster planning done in conjunction with 1239 community development planning helps to lay out recovery priorities, incorporate 1240 mitigation strategies in the wake of a disaster, and identify options and changes that 1241 need to be considered or implemented after a disaster. In addition, implementing 1242 the NIPP risk management framework, as a key element of the recovery planning 1243 process, enhances the resilience and protective posture of critical infrastructure. 1244 1245 Key Elements of Pre-Disaster Planning 1246 The key elements in overall pre-disaster planning include: 1247 . Establishing clear leadership, coordination and decision-making structures at 1248 the tribal, state, and local levels. 1249 . Developing pre-disaster partnerships to ensure engagement of all potential 1250 resources through the following methods: 1251 1252 Identifying and engaging stakeholders, including the general public, 1253 community leaders, and private sector. 1254 Organizing connections to and interface with tribal, state, local, and 1255 federal governments. 1256 Ensuring community participation of populations that have historically 1257 been underserved during the recovery process, including individuals with 1258 disabilities and others with access and functional needs, children, and the 1259 elderly. 1260 1261 . Testing and evaluating pre-disaster plans through seminars, workshops and 1262 exercises. 1263 . Integrating pre-disaster recovery planning with other appropriate community 1264 planning, such as land use, hazard mitigation, accessibility for people with 1265 disabilities, and capital improvement planning. 1266 . Identifying limitations in community recovery capacity and means to 1267 supplement. 1268 . Incorporating sustainability and accessibility throughout all phases of recovery 1269 into overall planning guidance. 1270 . Developing communication tools that address an array of possible scenarios. 1271 . Preparing pre-disaster Memoranda of Understanding as way to establish early 1272 partnership, planning, and expectations. 1273 . Developing and implementing long-term training and education as a tool for 1274 building recovery capacity and making it available to all other stakeholders. 1275 1276 In addition to the general elements of the pre-disaster planning process outlined 1277 above, there are also elements that are specific to the various participants in the 1278 process. Initially the responsibility of preparing for disaster recovery begins with 1279 the individual and builds to the larger responsibility of the community and local 1280 government. Local planning efforts are supported by voluntary, faith-based and 1281 community organizations, businesses, state, tribal, and the federal government. 1282 1283 Individual and Families 1284 Individuals who prepare for their own recovery help their community’s recovery as 1285 well. Preparations at the individual/family level include: 1286 . Having an individual or family plan for disaster recovery. 1287 . Being able to self-assess risk exposure. 1288 . Purchasing and maintaining appropriate and adequate levels of insurance for 1289 potential hazards in their area. 1290 . Working with others to prepare and reach out to those who may need 1291 assistance. 1292 1293 Private sector/Businesses 1294 Pre-disaster planning for private sector and businesses also integrates with the 1295 community and includes: 1296 . Developing, testing and implementing business continuity and restoration plans. 1297 . Providing training for business leaders in the community to assist with the 1298 business recovery process. 1299 . Participating in local pre-disaster planning. 1300 . Incorporating mitigation in design and construction for places of employment 1301 and promoting mitigation to employees. 1302 1303 Nonprofit Sectors 1304 Nonprofits play a valuable role in communities and their relationship with the 1305 community factors into their pre-disaster planning. This includes: 1306 . Building relationships with the emergency managers in their communities to 1307 have an active voice in the recovery process. 1308 . Identifying leaders and others to participate in local long-term recovery 1309 committees. 1310 . Incorporating mitigation in design and construction of place of employment and 1311 promoting mitigation to employees. 1312 . Identifying resources to provide services in a nondiscriminatory manner. 1313 1314 Local Government 1315 Local governments examine community-wide issues as part of pre-disaster 1316 planning. This includes: 1317 1318 . Understanding key risks and vulnerabilities that cause systemic and major 1319 disruptions and challenges for disaster recovery, reconstruction and 1320 revitalization. 1321 . Effectively communicating these risks and vulnerabilities to the exposed 1322 community. 1323 . Incorporating mitigation in design and construction; promoting mitigation to 1324 citizens. 1325 . Pre-identifying local recovery functions, roles and structure for post-disaster 1326 recovery effort in order to expedite the recovery process. 1327 . Identify critical infrastructure and key services that must be restored 1328 immediately post-disaster. 1329 . Maintaining capability to timely address recovery challenges, such as building 1330 moratoriums, damage assessments, and waivers and variances necessary to 1331 assist early recovery. 1332 . Planning for the needs of individuals with disabilities and others with access and 1333 functional needs, children, and the elderly as a fundamental aspect of the plan 1334 rather than as a supplement or special plan. 1335 . Taking tribal law and culture into consideration in the community planning 1336 process; instilling a respect and understanding for tribes’ unique heritage and 1337 needs. 1338 1339 State Government 1340 State governments carry out their essential roles in: 1341 1342 . Establishing, organizing, and coordinating goals, objectives and timelines for 1343 recovery. 1344 . Pre-identifying state recovery functions, roles, responsibilities and structures 1345 among state agencies and departments. 1346 . Maintaining a system to manage and monitor implementation of recovery effort, 1347 enforce accountability, ensure accessibility, and track resources. 1348 . Emphasizing the importance of pre-disaster recovery planning at the state and 1349 local level. 1350 . Working with local governments to integrate pre-disaster recovery planning 1351 with other appropriate community planning for local governments, such as 1352 hazard mitigation and capital improvement planning. 1353 . Identifying organizations within the community with pre-established methods in 1354 place to reach their stakeholders, and coordinating information sharing with 1355 these organizations regarding planning activities and meetings. 1356 . Ensuring local governments establish an accessible and inclusive process for 1357 addressing the recovery challenges pre- and post-disaster. 1358 . Providing a system of support from the state level to local governments that lack 1359 capability and request assistance. 1360 . Communicating and coordinating with federal recovery partners. 1361 . Taking tribal law and culture into consideration in the community planning 1362 process; instilling a respect and understanding for tribes’ unique heritage and 1363 needs. 1364 . Entering into agreements that articulate collaborations between tribal and local 1365 governments, particularly when a reservation land crosses multiple 1366 jurisdictions. 1367 . Clarifying relationships with both state and federal authorities to determine 1368 where tribes fit in the allocation of disaster resources when recovery initiatives 1369 begin. 1370 1371 Tribal Government 1372 1373 Tribal governments may accomplish pre-disaster planning by: 1374 1375 . Pre-assigning tribal recovery functions, roles, and responsibilities. 1376 . Maintaining a system to manage and monitor implementation of recovery effort, 1377 enforce accountability, ensure accessibility, and track resources. 1378 . Conducting pre-disaster recovery planning and encouraging pre-disaster 1379 mitigation measures. 1380 . Coordinating with local, state, and federal governments to facilitate post-disaster 1381 efforts and ensure tribes have knowledge of and access to available funding and 1382 other assistance. 1383 . Working with local governments to articulate and solidify collaborations 1384 between tribal and local governments, particularly when a reservation land 1385 crosses multiple jurisdictions. 1386 1387 Federal Government 1388 The Federal government supplements overwhelmed post-disaster tribal, state, and 1389 local capability for short- and long-term recovery governmental capacity, planning, 1390 and technical assistance after large-scale or catastrophic events. Federal facilitation 1391 of pre-disaster planning can help minimize post-disaster dependence on federal 1392 assistance. This planning includes: 1393 1394 . Providing technical assistance to tribal nations, states, local governments, and 1395 stakeholders on the process, practices, and policies of hazard mitigation. 1396 . Providing pre-disaster recovery planning training and tools for tribal, state, and 1397 local governments. 1398 . Planning for national level responsibilities of catastrophic and regional disaster 1399 recovery challenges. 1400 . Optimizing and coordinating the federal programs that support tribal, state, and 1401 local recovery efforts. 1402 . Communicating and coordinating with tribal, state, and local recovery partners. 1403 . Encouraging use of steady state grant programs by tribes, states, and 1404 municipalities that lack the resources to develop their own pre-disaster recovery 1405 plans. 1406 . Developing national metrics for evaluating pre-disaster preparedness of physical 1407 infrastructures and facilitate local jurisdictions, corporations, building owners, 1408 and major institutions to develop their recovery preparedness plans accordingly. 1409 . Facilitating sharing of planning best practices and recovery plans adopted by 1410 various tribal nations, states, and local jurisdictions. 1411 1412 Post-Disaster Community Recovery Planning 1413 Communities impacted by disaster should develop a process for optimally managing 1414 their recovery effort and resources when necessary. Post-disaster community 1415 recovery planning serves to integrate the range of complex decisions in the context 1416 of the disaster and works as the foundation for allocating resources. The planning 1417 process provides the benchmark to measure progress toward a successful outcome 1418 by the affected community. 1419 1420 Key Elements of Post-Disaster Planning 1421 All disaster-impacted communities can benefit by engaging in disaster recovery 1422 planning and creating plans that are meaningful to multiple audiences, including 1423 potential funders, nearby tribal nations, state and federal level agencies, and 1424 members of the community. The following elements play a key role in the post-1425 disaster planning process: 1426 . Organizing recovery priorities and tasks through the use of a planning process 1427 by: 1428 1429 o Assessing risk. 1430 o Evaluating the conditions and needs after a disaster. 1431 o Setting goals and objectives. 1432 o Identifying opportunities to build in future resilience through mitigation. 1433 o Identifying specific projects in areas of critical importance to the 1434 community’s overall recovery. 1435 1436 . Using a process that is community-driven and locally-managed, designed to 1437 promote local decision-making and ownership of the recovery planning and 1438 implementation effort. 1439 . Promoting inclusive and accessible outreach, working collaboratively with and 1440 through groups of people affiliated by geographic proximity, common interest, 1441 or similar situations to address issues affecting the well-being of those people. 1442 Public involvement is critical to the recovery plan and process. 1443 . Incorporating considerations that include the concept of “growing smarter” as 1444 long-term recovery unfolds. This includes compliance with standards for 1445 accessible design and construction. 1446 . Building partnerships among local agencies, jurisdictions, the state, tribal and 1447 federal governments. 1448 . Providing well-defined activities and outcomes aimed at achieving recovery with 1449 schedule and milestones. 1450 . Developing tools and metrics for evaluating progress against set goals, 1451 objectives, and milestones. 1452 1453 Planning for the complex needs of the full community and bringing all stakeholders 1454 to a common planning table, with a commitment to physical, programmatic and 1455 communications accessibility helps create a successful post-disaster recovery 1456 process. The greatest challenge of post-disaster recovery planning is the inherent 1457 struggle in getting a plan developed quickly enough to meet the needs of residents 1458 and businesses. The post-disaster planning process must operate on a much faster 1459 timeline than traditional, or pre-disaster planning processes. However, one of the 1460 basic goals of the process is to develop the relationships and inter-agency 1461 cooperation that will continue to serve the recovery process once the planning is 1462 complete. 1463 1464 Other elements of post-disaster recovery are specific to individual, local 1465 government, state and tribal, or federal governments. These are outlined below. 1466 1467 Individual and Families 1468 Disaster recovery begins at the local level. Key post-disaster planning elements for 1469 individuals and families include: 1470 1471 . Taking charge of managing individual and family recovery. 1472 . Participating in post-disaster community recovery planning. 1473 . Working with others to reach out to those who may need assistance. 1474 . Engaging in public involvement opportunities on specific recovery projects. 1475 1476 Nonprofit Sectors 1477 As important partners with the community, key post-disaster planning elements for 1478 nonprofit sectors include: 1479 1480 . Facilitating stakeholder workshops in various accessible locations in the 1481 community to determine priority issues for recovery from the neighborhoods 1482 that make up the community. 1483 . Providing leaders and others to participate in local, state and tribal recovery 1484 organizations. 1485 1486 Private sector/Businesses 1487 Private sector and businesses play an important role in the community and often 1488 compose a portion of the community leadership. Key post-disaster planning 1489 elements for the private sector and businesses include: 1490 1491 . Participating in local recovery planning. 1492 . Implementing business continuity and restoration plans. 1493 . Assuming significant role in local and state recovery organizations. 1494 1495 Local Government 1496 Recovery planning within a community is dependent on an active local government. 1497 Key post-disaster planning elements for local governments include: 1498 1499 . Leading recovery planning and prioritization of goals. 1500 . Incorporating principles of post-disaster planning into the recovery process. 1501 . Coordinating with relevant regional planning organizations that can provide 1502 resources and/or planning expertise. 1503 . Reviewing pre-existing plans and cross-checking against post-disaster planning 1504 priorities. 1505 . Implementing a transparent, accountable system to manage recovery resources. 1506 . Managing overall recovery coordination at the local level. 1507 . Communicating post-disaster planning as well as organizational and operational 1508 needs to the state. 1509 . Leading a planning process that is inclusive and accessible and facilitates 1510 practices that comply with all applicable laws, including civil rights mandates. 1511 1512 State Government 1513 States play an important role in supporting and where necessary, leading 1514 overwhelmed local governments to address complex governmental, regulatory and 1515 financial challenges during short and long term recovery. They do this by: 1516 1517 . Providing a system of support to local governments. 1518 . Coordinating efforts to meet recovery challenges across all sectors in 1519 collaboration with the recovery counterparts at all jurisdictional levels. 1520 . Conducting post-disaster planning by building on the foundation set during the 1521 pre-disaster planning phase, but modifying it based on the actual versus 1522 predicted risk and needs. 1523 . Developing an interface between state agencies and the federal government to 1524 streamline recovery funding at the local level. 1525 . Coordinating with relevant regional planning organizations that can provide 1526 resources and/or planning expertise. 1527 . Promoting proactive partnerships between non-profit organizations, faith-based 1528 organizations, the private sector or other relevant organizations and 1529 nontraditional and underserved communities throughout the recovery process. 1530 . Implementing and enforcing applicable laws and regulations to protect the 1531 rights of citizens needing physical, programmatic and communications access to 1532 recovery activities and services. 1533 1534 Tribal Government 1535 1536 Tribes may live on land that spans multiple jurisdictions and coordination with 1537 those jurisdictions plays a key role in planning for a tribes’ recovery from disaster. 1538 Ways in which tribes might accomplish this and other recovery activities include: 1539 1540 . Establishing, organizing, and coordinating goals, objectives and timelines for 1541 recovery. 1542 . Coordinating with local and state governments to provide mutual support. 1543 . Conducting post-disaster planning by building on the foundation set during the 1544 pre-disaster planning phase, but modifying it based on the actual versus 1545 predicted risk and needs. 1546 . Participating in long-term community recovery activities. 1547 . Developing a relationship the federal government to clarify and streamline 1548 recovery funding. 1549 1550 Federal Government 1551 The types of assistance and level of support provided by the federal government 1552 varies by community and depends on the disaster’s impact and the tribal, state, and 1553 local government’s capacity. The Federal government assists overwhelmed tribal, 1554 state, and local capabilities in their recovery from large-scale and catastrophic 1555 events by: 1556 1557 . Ensuring local ownership of the early recovery process through the engagement 1558 of tribal, state, and local authorities in the planning, execution, and monitoring of 1559 recovery actions. 1560 . Supplementing not supplanting local, state, and tribal resources and supporting 1561 local/state/tribal leadership of the recovery process. 1562 . Coordinating with Other Federal Agencies (OFA) to identify the geographic 1563 extent of the disaster impact and address the broader recovery challenges to 1564 infrastructure, supply chains, transportation systems and the like. 1565 . Maintaining a system for addressing intra-governmental recovery coordination. 1566 . Assessing the need for, and providing technical expertise when local and state or 1567 tribal capacity is overwhelmed by a large-scale or catastrophic event to support 1568 prompt beginning of recovery and to maximize joint recovery efforts and 1569 resources. 1570 . Providing planning guidance, tools resources and best practices to guide local, 1571 state, and tribal governments in planning their recovery. 1572 . Implementing regulations and guidance regarding legal obligations and other 1573 statutory obligations on all aspects of recovery including, but not limited to, 1574 those pertaining to accessibility standards and addressing the needs of 1575 individuals with disabilities. 1576 . Supporting local, state, and tribal application, use, and management of federal 1577 grants. 1578 . Evaluating the feasibility of sustainable recovery in disaster-affected areas and 1579 identifying what is needed to support that recovery. 1580 X. COMMUNITY CONSIDERATIONS 1581 Accessibility and Recovery 1582 The guidance included here is specific to issues related to individuals with 1583 disabilities and others with access and functional needs. 1584 . Recognize that best practices are not to be confused with legal obligations to 1585 engage in recovery activities that are fully inclusive of individuals with 1586 disabilities. Those applying this framework should be aware of statutory 1587 obligations involved, which may include, but not be limited to: 1588 . Stafford Act, as amended 1589 . Post-Katrina Emergency Management Reform Act 1590 . Rehabilitation Act of 1973, as amended 1591 . Americans with Disabilities Act, as amended 2008 1592 . Fair Housing Act of 1968, as amended 1593 . Architectural Barriers Act of 1968 1594 . Communications Act of 1934, as amended 1595 . Individuals with Disabilities Education Act (IDEA) of 1975, as 1596 amended 1597 Obligations include accessibility in architecture, transportation, effective 1598 communication, employment, education, policies, and programs, including 1599 those receiving federal funding. 1600 . Ensure integration of people with disabilities into all aspects of emergency 1601 management rather than as a supplement or special plan in, among others, 1602 policies, practices, procedures, guidelines, standards, memoranda of 1603 understanding, and agreements/contracts. 1604 . Use existing resources to determine accessibility of facilities and programs, such 1605 as the ADA Best Practices Tool Kit available at the Department of Justice’s 1606 website for the ADA: www.ada.gov. Determine shortfalls based on tools and 1607 address deficiencies. 1608 . Engage in pre-disaster contracting and planning to meet the emergency needs of 1609 children and adults with disabilities, including the provision of disability related 1610 assistance/functional needs support services, consumable medical supplies, 1611 durable medical equipment, accessible transportation, and accessible housing. 1612 . Involve disability organizations into recovery planning efforts and all recovery 1613 committee types. Integrate disability and access and functional needs 1614 considerations into housing, economic and workplace, health care, 1615 transportation and infrastructure. 1616 . Conduct disaster recovery awareness training for stakeholders, including 1617 disability navigators; advocacy organizations, including those representing the 1618 needs of children with disabilities; senior centers and aging agencies; 1619 rehabilitation offices; and relevant organizations. Provide such training in 1620 compliance with the law using tools such as the ADA Best Practices Tool Kit. 1621 . Develop training for local partners that FEMA expects to fulfill obligations under 1622 the National Disaster Housing Strategy and Plan. These partners (including 1623 emergency managers, social workers, organizations, and agencies) may lack the 1624 familiarity that is presumed necessary for working with people with disabilities 1625 and others with access and functional needs and the organizations that support 1626 these populations. 1627 . Recognize that there are individuals who have acquired disabilities as a result of 1628 the disaster. These individuals may need added assistance to familiarize 1629 themselves with the processes to access services and supports so that they can 1630 be as independent as possible and participate in the recovery process. 1631 . Consider the continuing impact of a hazard, such as lingering smoke or the long-1632 term effects of debris, on those with existing and new disabilities. 1633 . Ensure that all print, electronic and face to face communication is accessible to 1634 people with disabilities and others with access and functional needs. Provide 1635 necessary auxiliary aids and services to achieve effective communication, 1636 including interpreters, computer assisted real-time transcription (CART), large 1637 print, captioning, audio descriptions, wayfinding, note taking, etc. 1638 . Liaison with large scale employers and providers of vocational and job training 1639 support to address the recovery of the employment sector. 1640 . Recognize that Federal worker protection laws such as the Fair Labor Standards 1641 Act, Occupational Safety and Health regulations, National Labor Relations Act, 1642 and the laws administered by the Equal Employment Opportunity Commission 1643 must be upheld for workers who are employed to rebuild the impacted 1644 community. 1645 1646 Additional Resources: 1647 . Chapter 7 of the ADA Best Practices Tool Kit, Emergency Management, 1648 http://www.ada.gov/pcatoolkit/toolkitmain.htm 1649 . SME: Interagency Council on Emergency Prep. & Individuals with Disabilities 1650 (ICC) 1651 . Hurricane Ike Impact Report: Special Needs Populations Impact Assessment 1652 Source Document, White Paper, available at: 1653 http://www.disabilitypreparedness.gov/pdf/ike_snp.pdf 1654 . National Council on Disability August 2009 Report: Effective Emergency 1655 Management: Making Improvements for Communities and People with 1656 Disabilities- 1657 http://www.ncd.gov/newsroom/publications/2009/NCD_EmergencyManagem1658 ent_HTML/EffectiveEmergencyManagement.html . 1659 1660 Unmet Needs 1661 A successful recovery plan should adequately attend to and address unmet needs for 1662 individuals and families as they recover from disaster. This is particularly true for 1663 the most vulnerable community members, including underserved populations. As 1664 part of the post disaster recovery needs assessment, recovery planners can survey 1665 and interview community members to obtain first-hand information on what the 1666 unmet needs are and suggestions for meeting these needs. More importantly, 1667 recovery planners should collaborate closely with the federal Voluntary Agency 1668 Liaisons and other applicable government offices to facilitate considerations and 1669 inclusions of unmet needs throughout the recovery planning process and initiatives. 1670 Typical areas of enduring need after disaster include: long-term mental health 1671 concerns in relation to traumatic events induced by disasters; transportation for 1672 and during relocation; long-term housing; children’s stability within schools; 1673 investigation of under-insured properties; affordability of home repairs or 1674 insurance deductibles; and middle-class families who fall out of the purview of 1675 poverty relief or poor-assistance agencies. 1676 1677 Rural Area Recovery Needs 1678 Rural communities have particular needs following a disaster. The definition of 1679 “rural” can be quite broad; it could include cohesive, relatively dense communities 1680 that are simply unincorporated and suffer from the lack of local resources or 1681 management, or it could include thinly populated stretches of land affected by a 1682 sweeping disaster (potentially agricultural). Such communities may desperately 1683 need a pre-disaster regional recovery plan, but lack the resources, leadership, or 1684 political autonomy to engage in one. Another profound obstacle to recovery occurs 1685 when a rural population has been devastated, but sparse infrastructure across a vast 1686 stretch of land makes logistical endeavors particularly challenging. 1687 1688 In rural communities, sometimes the human population incurs the greatest loss 1689 through devastation to the land itself, rather than any man-made assets. Whether 1690 the disaster loss is caused through drought, floods, crop blight, or livestock illnesses 1691 (epizootic), agricultural concerns demand a recovery approach that is distinct from 1692 densely populated urban settlements or manufacturing centers. Other communities 1693 needing a rural recovery approach are those dependent upon such industries as 1694 forestry, mining, fisheries, or oil/mineral exploration. In addition, tribal 1695 governments may be very rural in nature and could suffer disproportionately in a 1696 disaster, due to a similar dependence on land and lack of sophisticated 1697 infrastructure. 1698 1699 High Density Urban Area Recovery Needs 1700 Major disasters may fundamentally change the landscape of urban communities. 1701 This may include the social, business, and physical landscapes. For this reason, the 1702 old urban plans cannot simply be dusted off and reused after a significant disaster. 1703 New urban plans may need to be created, and the citizens should be involved in the 1704 process. Community leaders and citizens alike should assess the new challenges 1705 and opportunities that the community faces and create a “preferred future” for the 1706 urban area. 1707 XI. ABBREVIATIONS & DEFINITIONS 1708 ABBREVIATIONS 1709 1710 ARC – American Red Cross 1711 CBO – Community-Based Organization 1712 CDBG – Community Development & Block Grant Program 1713 CNCS – Corporation for National and Community Service 1714 DAE – Disaster Assistance Employee 1715 DHS – Department of Homeland Security 1716 DOC – Department of Commerce 1717 DOD – Department of Defense 1718 DOE – Department of Energy 1719 DOI – Department of the Interior 1720 DOJ – Department of Justice 1721 DOL – Department of Labor 1722 DOT – Department of Transportation 1723 DRC – Disaster Recovery Center 1724 DRM – Disaster Recovery Manager 1725 DVA – Department of Veterans Affairs 1726 EDA – Economic Development Administration 1727 EOC – Emergency Operations Center 1728 EPA – Environmental Protection Agency 1729 ESF – Emergency Support Function 1730 ESFLG – Emergency Support Function Leadership Group 1731 FCO – Federal Coordinating Officer 1732 FEMA – Federal Emergency Management Agency 1733 FRC – Federal Recovery Coordinator 1734 HUD – Department of Housing and Urban Development 1735 HHS – Department of Health and Human Services 1736 HQ – Headquarters 1737 IA – Individual Assistance 1738 IAA – Interagency Agreement 1739 ICS – Incident Command System 1740 IHP – Individuals & Households Program 1741 IP – Office of Infrastructure Protection 1742 JFO – Joint Field Office 1743 LTCR – Long-Term Community Recovery 1744 MOU – Memorandum of Understanding 1745 NGO – Nongovernmental Organization 1746 NIMS – National Incident Management System 1747 NIPP – National Infrastructure Protection Plan 1748 NPS – National Park Service 1749 NOAA – National Oceanic and Atmospheric Administration 1750 NPPD – National Protection Programs Directorate 1751 NRCC – National Response Coordination Center 1752 NRF – National Response Framework 1753 NVOAD – National Voluntary Organizations Active in Disaster 1754 OIG – Office of Inspector General 1755 PA – Public Assistance 1756 PKEMRA - Post-Katrina Emergency Management Reform Act 1757 RISC – Regional Interagency Steering Committee 1758 RSF – Recovery Support Functions 1759 SBA – Small Business Administration 1760 SCO – State Coordinating Officer 1761 SME – Subject Matter Expert 1762 SOP – Standard Operating Procedure 1763 SRC – State Recovery Coordinator 1764 TRO – Transitional Recovery Office 1765 TVA – Tennessee Valley Authority 1766 USACE – U.S. Army Corps of Engineers 1767 USDA – U.S. Department of Agriculture 1768 VAL – Voluntary Agency Liaison 1769 VOAD – Voluntary Agencies Active in Disaster 1770 1771 DEFINITIONS 1772 1773 Community – In the context of facilitating disaster recovery, community refers to a 1774 network of individuals and families, businesses, institutions and other civic organizations 1775 that reside or operate within a shared geographical boundary; and may be represented by 1776 a common political leadership at a regional, county, municipal or neighborhood level. 1777 1778 Critical Infrastructure – Systems and assets, whether physical or virtual, so vital that 1779 the incapacity or destruction of such may have a debilitating impact on the security, 1780 economy, public health or safety, environment, or any combination of these matters, 1781 across any Federal, State, regional, territorial, or local jurisdiction. 1782 1783 Functional Needs – Refers to the needs of an individual who under usual 1784 circumstances is able to function on their own or with support systems. However 1785 during an emergency, their level of independence is challenged. 1786 1787 Individual with Disability – The term refers to a person (child or adult) who has a 1788 physical or mental impairment that substantially limits one or more major life 1789 activities; a person who has a history or record of such impairment; or a person who 1790 is perceived by others as having such impairment. The term “disability” has the same 1791 meaning as that used in the ADA Amendments Act of 2008, P.L. 110-325, as 1792 incorporated into the ADA. See http://www.ada.gov/pubs/ada.htm 1793 for the definition and specific changes to the text of 1794 the ADA. State laws and local ordinances may also include individuals outside the 1795 federal definition. Children and adults may have physical, sensory, mental health, 1796 cognitive and/or intellectual disabilities resulting in access and functional needs 1797 and may require assistance to maintain independence. 1798 1799 Intermediate Recovery – Involves returning critical infrastructure and essential 1800 government or commercial services back to a functional, if not pre-disaster state. 1801 Such activities are often characterized by temporary actions that provide a bridge to 1802 permanent measures. 1803 1804 Long-term Recovery – Process of recovery that follows a disaster event and may 1805 continue for months and years. Examples include the complete redevelopment and 1806 revitalization of the damaged area, which could mean returning the area to 1807 conditions set in a long-term recovery plan. 1808 1809 Mitigation – Activities providing a critical foundation in the effort to reduce the loss of 1810 life and property from natural and/or manmade disasters by avoiding or lessening the 1811 impact of a disaster and providing value to the public by creating safer communities. 1812 Mitigation seeks to fix the cycle of disaster damage, reconstruction, and repeated 1813 damage. These activities or actions, in most cases, will have a long-term sustained effect. 1814 1815 Recovery – The development, coordination, and execution of service- and site-1816 restoration plans; the reconstitution of government operations and services; 1817 individual, private-sector, nongovernmental, and public-assistance programs to 1818 provide housing and to promote restoration; long-term care and treatment of 1819 affected persons; additional measures for social, environmental, and economic 1820 restoration; evaluation of the incident to identify lessons learned; post incident 1821 reporting; and development of initiatives to mitigate the effects of future incidents. 1822 1823 Redevelopment – Rebuilding degraded, damaged, or destroyed social, economic 1824 and physical infrastructure in a community, state, or tribal nation to create the 1825 foundation for long-term development. 1826 1827 Resilience – Ability of a community to remain strong or unharmed, and/or to be 1828 able to quickly and effectively recover from a disaster’s impact upon its 1829 infrastructure, economy, social and natural environment. 1830 1831 Response – Immediate actions to save lives, protect property and the environment, 1832 and meet basic human needs. Response also includes the execution of emergency 1833 plans and actions to support short-term recovery. 1834 1835 Restoration – Returning a physical structure, essential government or commercial 1836 services, or a societal condition back to its pre-disaster state through repairs, 1837 rebuilding, or reestablishment. 1838 Short-term Recovery – Phase of recovery in which the scope of damages and needs are 1839 assessed, basic infrastructure is restored, and recovery organizations and resources are 1840 mobilized. 1841 Stabilization – The process by which the immediate impacts of an event on 1842 community systems are managed and contained. 1843 1844 Sustainability – Meeting the needs of the present without compromising the ability 1845 of future generations to meet their own needs. 1846 1847 Underserved Populations/Communities – Groups that have limited or barriers to 1848 access to resources or are otherwise disenfranchised. These groups include those 1849 who are socioeconomically disadvantaged; persons who have limited English 1850 proficiency; people who are geographically isolated or educationally 1851 disenfranchised; minority groups; women and children; individuals with disabilities 1852 and others with access and functional needs; and older people. 1853