National Disaster Recovery Framework (pdf) - Federal Emergency ...

National Disaster Recovery FrameworkTABLE OF CONTENTS.EXECUTIVE SUMMARY, PAGE 1.INTRODUCTION, PAGE 3.PURPOSE OF THE FRAMEWORK, PAGE 5.CORE PRINCIPLES, PAGE 9.ACHIEVING DISASTER RECOVERY, PAGE 13.RECOVERY ROLES AND RESPONSIBILITIES, PAGE 19.LEADERSHIP, PAGE 25.RECOVERY SUPPORT FUNCTIONS, PAGE 37.PLANNING FOR SUCCESSFUL DISASTER RECOVERY, PAGE 63.COMMUNITY CONSIDERATIONS, PAGE 71.ABBREVIATIONS, PAGE 77.DEFINITIONS, PAGE 79.GUIDE TO FIGURES AND TABLES, PAGE 83.APPENDICES, PAGE 85.Page I

CHAPTERNational DisasterRecovery Framework1. EXECUTIVE SUMMARY​.Experience with recent disaster recoveryefforts highlights the need for additionalguidance, structure and support to improvehow we as a Nation address recoverychallenges. This experience prompts us tobetter understand the obstacles to disasterrecovery and the challenges faced bycommunities that seek disaster assistance.The National Disaster Recovery Framework (NDRF)is a guide to promote effective recovery,particularly for those incidents that are largescaleor catastrophic.The NDRF provides guidance thatenables effective recovery support todisaster-impacted States, Tribes and localjurisdictions. It provides a flexible structurethat enables disaster recovery managersto operate in a unified and collaborativemanner. It also focuses on how best torestore, redevelop and revitalize the health,social, economic, natural and environmentalfabric of the community and build a moreresilient Nation.The NDRF defines:• Core recovery principles• Roles and responsibilities of recoverycoordinators and other stakeholders• A coordinating structure that facilitatescommunication and collaboration amongall stakeholders• Guidance for pre- and post-disasterrecovery planning• The overall process by which communitiescan capitalize on opportunities to rebuildstronger, smarter and saferThese elements improve recovery supportand expedite recovery of disaster-impactedindividuals, families, businesses andcommunities. While the NDRF speaks to allwho are impacted or otherwise involved indisaster recovery, it concentrates on supportto individuals and communities.The NDRF introduces four new concepts andterms:• Federal Disaster Recovery Coordinator(FDRC)• State or Tribal Disaster RecoveryCoordinators (SDRC or TDRC)• Local Disaster Recovery Managers(LDRM)• Recovery Support Functions (RSFs)The FDRC, SDRC, TDRC and LDRM providefocal points for incorporating recoveryconsiderations into the decisionmakingprocess and monitoring the need foradjustments in assistance where necessaryand feasible throughout the recovery process.The RSFs are six groupings of core recoverycapabilities that provide a structure tofacilitate problem solving, improve accessto resources, and foster coordination amongEXECUTIVE SUMMARYPage 1

CHAPTER2. INTRODUCTION.National DisasterRecovery FrameworkThe National Disaster Recovery Framework (NDRF)describes the concepts and principlesthat promote effective Federal recoveryassistance. It identifies scalable, flexible andadaptable coordinating structures to alignkey roles and responsibilities. It links local,State, Tribal and Federal governments, theprivate sector and nongovernmental andcommunity organizations that play vital rolesin recovery. The NDRF captures resources,capabilities and best practices for recoveringfrom a disaster. It recognizes that significantchallenges confront all recovery efforts, froma relatively localized incident to a large-scaledisaster that demands substantial resources.Importantly, the NDRF is intended to addressdisasters of all kinds and sources, whetherit is a major Presidentially-declared disasteror a non-Presidentially declared incident.The NDRF is a companion document tothe National Response Framework (NRF) and issupported by the ongoing development ofdetailed operational, management, fieldguidance and training tools.In September 2009, President BarackObama charged the U.S. Departmentof Homeland Security (DHS) and theU.S. Department of Housing and UrbanDevelopment (H U D) to establish a Long-Term Disaster Recovery Working Group(the Working Group). Composed of morethan 20 Federal departments, agencies andoffices, the Working Group was asked todevelop operational guidance for recoveryorganizations, which resulted in the creationof the NDRF, and to make recommendationsfor improving the Nation’s approach todisaster recovery.During the fall of 2009, DHS/FederalEmergency Management Agency (FEMA)and HUD sponsored outreach sessions ineach of FEMA’s ten regions and stakeholderforums in five cities across the country. Theobjective was to offer stakeholders from awide array of organizations and backgroundsthe opportunity to provide up-frontcomments to the Working Group on ways tostrengthen disaster recovery. DHS/FEMA andH U D also organized discussion roundtableswith professional associations and academicexperts. The Working Group created a Webportal, which enabled a large and diversegroup of stakeholders to provide commentsinto the development of the NDRF. Oversix hundred stakeholders representing local,State, Tribal and Federal governments, as wellas public and private sector organizationsfrom across the Nation contributed morethan six thousand comments.The NDRF reflects as core principles ninesignificant themes and recommendations thatemerged from these stakeholder outreachefforts. These principles are:• Individual and Family Empowerment.• Leadership and Local Primacy.• Pre-Disaster Recovery Planning.INTRODUCTIONPage 3

National Disaster Recovery Framework• Partnerships and Inclusiveness.• Public Information.• Unity of Effort.The NDRF and supporting guidance andtools that follow its publication form theframework of a national disasterrecovery strategy.• Timeliness and Flexibility.• Resilience and Sustainability.• Psychological and Emotional Recovery.Built as a document to forge a commonunderstanding of roles, responsibilities andresources available for effective recovery, theNDRF is designed for anyone who is involvedin disaster recovery. Key concepts in thedocument are the need for:• Structure — Provided by RecoverySupport Functions (RSFs).• Leadership — Provided locally andstrengthened through support bythe State or Tribal Disaster RecoveryCoordinator (SDRCs or TDRCs); LocalDisaster Recovery Managers (LDRMs);RSFs; private sector and nongovernmentalorganization (N G O) leaders; and whenneeded, the Federal Disaster RecoveryCoordinator (FDRC).• Planning — Developed during both preandpost-disaster phases.These concepts are explained and developedin the NDRF. When combined with the fullinvolvement of all stakeholders, along withrealistic and well-communicated expectationsof desired outcomes, the concepts constitutethe building blocks for a successful recovery.INTRODUCTIONPage 4

National DisasterRecovery FrameworkSEE FOOTNOTECHAPTER3. PURPOSE OF THE FRAMEWORK.The National Disaster Recovery Framework (NDRF)defines how Federal agencies will moreeffectively organize and operate to utilizeexisting resources to promote effectiverecovery and support States, Tribes and otherjurisdictions affected by a disaster. It is alsowritten for a larger audience of non-FederalGovernment executives, private sector andnongovernmental organization (N G O)leaders, emergency managers, communitydevelopment professionals and disasterrecovery practitioners 1 .Recovery begins with pre-disasterpreparedness and includes a wide range ofplanning activities. The NDRF clarifies theroles and responsibilities for stakeholdersin recovery, both pre- and post-disaster. Itrecognizes that recovery is a continuum andthat there is opportunity within recovery. Italso recognizes that when a disaster occurs,it impacts some segments of the populationmore than others.The ability of a community to accelerate therecovery process begins with its efforts inpre-disaster preparedness, mitigation andrecovery capacity building. These effortsresult in a resilient community with animproved ability to withstand, respondto and recover from disasters. Timelydecisions in response to disaster impacts cansignificantly reduce recovery time and cost.The NDRF describes key principles andsteps for community recovery planning1.The NDRF is not intended to, and does not, create any right orbenefit, substantive or procedural, enforceable at law or in equity,by any party against the United States, its departments, agencies,or entities, its officers, employees, or agents, or any other person.and implementation. It promotes a processin which the impacted community fullyengages and considers the needs of all itsmembers. A key element of the process isthat the impacted community assumes theleadership in developing recovery prioritiesand activities that are realistic, well-plannedand clearly communicated.The NDRF advances the concept that recoveryencompasses more than the restoration of acommunity’s physical structures to its predisasterconditions. Of equal importance isproviding a continuum of care to meet theneeds of the affected community memberswho have experienced the hardships offinancial, emotional or physical impactsas well as positioning the community tomeet the needs of the future. The NDRFalso highlights the importance of disasterrecovery activities that promote sustainabilitypractices. These practices may reducecommunity vulnerability to recurrentdisasters. Meeting these various needs— through strengthening the health andhuman services, social fabric, educationalsystem, environmental sustainability, culturalresources and economic vitality — serves toenhance the overall resiliency of the entirecommunity as the recovery progresses.RESOURCESThe National Disaster Recovery Framework (NDRF)is a guide to promote effective recovery— it is a concept of operations and notPURPOSE OF THE FRAMEWORKfootnoteEnd of footnote.Page 5

National Disaster Recovery FrameworkRELATIONSHIP TO THENATIONAL RESPONSEFRAMEWORK.The focus of the National Response Framework(NRF) is the response actions as well asthe short-term recovery activities thatimmediately follow or overlap those actions.The National Disaster Recovery Framework (NDRF)does not speak to these short-term activitiessuch as life saving, life sustaining, propertyprotection and other measures intendedto neutralize the immediate threat to life,environment and property, as well as tostabilize the community. However, theseactivities influence recovery activities,necessitating the need for a structure toconsider and advise on recovery implicationsduring the early phases of incidentmanagement. The NDRF provides the toolsto encourage early integration of recoveryconsiderations into the response phaseoperations.As response, short-term and intermediaterecovery activities begin to wind down,recovery needs gradually take on a morecritical role. The core principles andorganizational constructs introduced in theNDRF coexist with the NRF and build uponits organizational structure and resources tomore effectively address recovery needs. TheNRF fully transitions to the NDRF when thedisaster-specific mission objectives of theEmergency Support Functions (ESFs) are metand all ESFs demobilize.Together, the NDRF and the NRF providethe doctrine and guidance to implement theresponse and recovery aspects of the NationalHomeland Security Strategy (2007). In addition,the National Infrastructure Protection Plan (N I P P)and the Critical Infrastructure and Key Resources(C I K R) Annex to the NRF provide a bridgebetween steady-state C I K R protection andresponse and recovery programs designedto support the maintenance and restorationof the Nation’s C I K R. These documentsincorporate and adopt the central tenets ofthe National Incident Management System (N I M S)and support the primacy of local, State andTribal governments in preparing for andmanaging the response and recovery fromnatural and human-caused disasters.NATIONAL PREPAREDNESSSYSTEMThe National Disaster Recovery Framework (NDRF)will be revised as the National PreparednessSystem is further developed and thePrevention, Protection, Mitigation andResponse Frameworks are completed orupdated to ensure that actions taken in theNDRF are coordinated with relevant actionsdescribed in the other frameworks acrossthe preparedness spectrum. In addition,core recovery capabilities will be furtherdefined as interagency operational plans andplanning guidance documents are developedto support the NDRF as part of the NationalPreparedness System.RECOVERY CONTINUUM.The recovery process is best described asa sequence of interdependent and oftenconcurrent activities that progressivelyadvance a community toward a successfulrecovery. However, decisions made andpriorities set early in the recovery processby a community will have a cascading effecton the nature and speed of the recoveryprogress. Figure 1 indicates how responseand recovery functions are related inexample sectors.PURPOSE OF THE FRAMEWORKPage 7

National Disaster Recovery FrameworkFIGURE 1. RECOVERY CONTINUUM – DESCRIPTION OF ACTIVITIES BY PHASE.This recovery continuum describes overlapping recoveryactivities by phase.PURPOSE OF THE FRAMEWORKPage 8

National Disaster Recovery Frameworkdisaster recovery managers. States act insupport of their communities, evaluatetheir capabilities and provide a means ofsupport for overwhelmed local governments.The Federal Government is a partner andfacilitator in recovery, prepared to enlargeits role when the disaster impacts relate toareas where Federal jurisdiction is primaryor affects national security. The FederalGovernment, while acknowledging theprimary role of local, State and Tribalgovernments, is prepared to vigorouslysupport local, State and Tribal governmentsin a large-scale disaster or catastrophicincident.PRE-DISASTER RECOVERYPLANNING.The speed and success of recovery can begreatly enhanced by establishment of theprocess and protocols prior to a disaster forcoordinated post-disaster recovery planningand implementation. All stakeholdersshould be involved to ensure a coordinatedand comprehensive planning process,and develop relationships that increasepost-disaster collaboration and unifieddecisionmaking. Another important objectiveof pre-disaster recovery planning is to takeactions that will significantly reduce disasterimpacts through disaster-resilient buildingpractices. The NDRF strongly encouragesinnovation among the States, Tribes,localities, and the private sector in workingtogether to identify State, Tribal and locallygeneratedtools and resources, pre-disaster,that will serve to support and sustain disastermitigation and recovery efforts.PARTNERSHIPS ANDINCLUSIVENESS.Partnerships and collaboration acrossgroups, sectors and governments promotea successful recovery process. Partnershipsand inclusiveness are vital for ensuring thatall voices are heard from all parties involvedin disaster recovery and that all availableresources are brought to the table. This isespecially critical at the community levelwhere nongovernmental partners in theprivate and nonprofit sectors play a criticalrole in meeting local needs. Inclusivenessin the recovery process includes individualswith disabilities and others with access andfunctional needs, advocates of children,seniors and members of underservedpopulations. Sensitivity and respect for socialand cultural diversity must be maintainedat all times. Compliance with equalopportunity and civil rights laws must alsobe upheld.PUBLIC INFORMATION.Clear, consistent, culturally appropriateand frequent communication initiativespromote successful public informationoutcomes. These incorporate a process thatis inclusive and ensures accessibility to all,including those with disabilities, personswho are deaf or blind and those with limitedEnglish proficiency. Public informationmessaging helps manage expectationsthroughout the recovery process andsupports the development of local, Stateand Tribal government communicationsplans. This ensures stakeholders have aclear understanding of available assistanceand their roles and responsibilities; makesclear the actual pace, requirements and timeneeded to achieve recovery; and includesinformation and referral help lines andwebsites for recovery resources.CORE PRINCIPLESPage 10

National Disaster Recovery FrameworkUNITY OF EFFORT.A successful recovery process requires unityof effort, which respects the authority andexpertise of each participating organizationwhile coordinating support of commonrecovery objectives. Common objectives arebuilt upon consensus and a transparent andinclusive planning process with clear metricsto measure progress.TIMELINESS AND FLEXIBILITY.A successful recovery process upholdsthe value of timeliness and flexibility incoordinating and efficiently conductingrecovery activities and delivering assistance.It also minimizes delays and loss ofopportunities. The process strategicallysequences recovery decisions and promotescoordination; addresses potential conflicts;builds confidence and ownership of therecovery process among all stakeholders;and ensures recovery plans, programs,policies and practices are adaptable tomeet unforeseen, unmet and evolvingrecovery needs.incorporates hazard mitigation and land useplanning strategies; critical infrastructure,environmental and cultural resourceprotection; and sustainability practices toreconstruct the built environment, andrevitalize the economic, social and naturalenvironments.PSYCHOLOGICAL ANDEMOTIONAL RECOVERY.A successful recovery process addresses thefull range of psychological and emotionalneeds of the community as it recovers fromthe disaster through the provision of support,counseling, screening and treatment whenneeded. These needs range from helpingindividuals to handle the shock and stressassociated with the disaster’s impact andrecovery challenges, to addressing thepotential for and consequences of individualsharming themselves or others throughsubstance, physical and emotional abuses.Successful recovery acknowledges thelinkages between the recovery of individuals,families and communities.RESILIENCE AND SUSTAINABILITY.A successful recovery process promotespractices that minimize the community’s riskto all hazards and strengthens its ability towithstand and recover from future disasters,which constitutes a community’s resiliency.A successful recovery process engages ina rigorous assessment and understandingof risks and vulnerabilities that mightendanger the community or pose additionalrecovery challenges. The process promotesimplementation of the National InfrastructureProtection Plan (N I P P) risk managementframework to enhance the resilience andprotection of critical infrastructure againstthe effects of future disasters. ResilienceCORE PRINCIPLESPage 11

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CHAPTERNational DisasterRecovery Framework5. ACHIEVING DISASTER RECOVERY.Each community defines successfulrecovery outcomes differently based onits circumstances, challenges, recoveryvision and priorities. One community maycharacterize success as the return of itseconomy to pre-disaster conditions whileanother may see success as the opening ofnew economic opportunities. Although nosingle definition fits all situations, successfulrecoveries do share conditions in which:• The community successfullyovercomes the physical, emotional andenvironmental impacts of the disaster.• It reestablishes an economic and socialbase that instills confidence in thecommunity members and businessesregarding community viability.• It rebuilds by integrating the functionalneeds of all residents and reducing itsvulnerability to all hazards facing it.• The entire community demonstrates acapability to be prepared, responsive, andresilient in dealing with the consequencesof disasters.Recovery is more than the community’sreturn to pre-disaster circumstances,especially when the community determinesthat these circumstances are no longersustainable, competitive or functional asshown by the community’s post-disastercondition. A successful recovery in this casemay include a decision to relocate all orsome portion of the community assets andrestoration of the affected area to a morenatural environment. In these circumstances,the community recovery decisionmaking isinformed by evaluating all alternatives andoptions and avoiding simple rebuilding orreconstructing of an area that continues to bevulnerable.FACTORS OF A SUCCESSFULRECOVERY.Experience shows that the presence of certainfactors in a community can help ensure asuccessful recovery.begin side text box.SUCCESS FACTORS.Effective Decisionmaking andCoordination.Integration of CommunityRecovery Planning Processes.Well-managed Recovery.Proactive CommunityEngagement, Public Participationand Public Awareness.Well-administered FinancialAcquisition.Organizational Flexibility.Resilient Rebuilding.END SIDE TEXT BOX.ACHIEVING DISASTER RECOVERYPage 13

National Disaster Recovery FrameworkEFFECTIVE DECISIONMAKING ANDCOORDINATION.• Recovery leadership defines roles andresponsibilities for all stakeholders.• Businesses, nonprofits and localcommunity leadership examine recoveryalternatives, address conflicts and makeinformed and timely decisions thatbest achieve recovery of the impactedcommunity.• Organizations providing leadershipor assistance for recovery establishmetrics for tracking progress, ensuringaccountability and reinforcing realisticexpectations among stakeholders.• Governments, voluntary, faith-basedand community organizations provideassistance to track progress, ensureaccountability and make adjustments toongoing assistance.INTEGRATION OF COMMUNITYRECOVERY PLANNING PROCESSES.• Communities engage in pre-disasterrecovery planning and other recoverypreparedness, mitigation and communityresilience-building work.• Individual, business and communitypreparation and resilience-buildingprovide a foundation for recovery plansthat improve the speed and quality ofpost-disaster recovery decisions.• The public-private partnership under theNational Infrastructure Protection Plan (N I P P)facilitates broad coordination andinformation sharing among all levels ofACHIEVING DISASTER RECOVERYgovernment and private sector ownersand operators of critical infrastructure.• The community develops processes andcriteria for identifying and prioritizingkey recovery actions and projects.• The community’s recovery leadershipcreates an organizational frameworkinvolving key sectors and stakeholders tomanage and expedite recovery planningand coordination.• Recovery authorities revise existinglocal and State level emergency responsecontingencies to include recoveryplanning best practices and otherpreparedness, mitigation and communityresilience-building work.WELL-MANAGED RECOVERY.• Well-established, pre-disasterpartnerships at the local, State, Tribaland Federal levels, including those withthe private sector and nongovernmentalorganizations (NGOs), help to drive asuccessful recovery.• Recovery stakeholders leverage andcoordinate disaster and traditionalpublic and NGO assistance programs toaccelerate the recovery process and avoidduplication of efforts.• Communities seek out, interface andcoordinate successfully with outsidesources of help, such as surroundinggovernments, foundations, universities,nonprofit organizations and privatesector entities — a key element in rapidrecovery.• Readily available surge staffing andmanagement structures support theincreased workload during recovery,Page 14

National Disaster Recovery Frameworksuch as code enforcement, planning,communications, grant-writingand management.• Recovery leadership establishesguidance, including the shift of roles andresponsibilities, for the transition fromresponse operations, to recovery andfinally, a return to a new normal state ofcommunity functioning.• Well-managed recoveries ensurecompliance with architectural standards andprogrammatic accessibility during recovery.PROACTIVE COMMUNITYENGAGEMENT, PUBLICPARTICIPATION AND PUBLICAWARENESS.• Stakeholders collaborate to maximizethe use of available resources to rebuildhousing, infrastructure, schools,businesses and the social-historicalculturalfabric of the impactedcommunity in a resilient manner; and toprovide health care, access and functionalsupport services.• All community perspectives arerepresented in all phases of disaster andrecovery planning; transparency andaccountability in the process are clearlyevident.• Communities create post-disasterrecovery plans that can be implementedquickly. Local opinions are incorporatedso that community needs are met in amore holistic manner, maximizing theprovision and utilization of recoveryresources and built upon, or incorporatedinto, the community master plan.• Public information is accessible tokeep everyone informed throughoutthe recovery process. This includesproviding appropriate aids and services,such as captioning, large print, Braille,interpretation and translated materials,to ensure effective communicationwith individuals with disabilities andto facilitate access to informationfor individuals with limited Englishproficiency.• Continuous and accessible publicinformation campaigns to communitymembers on various recovery programsand the commitment to short,intermediate and long-term recovery,as well as the overall recovery progress,increase public confidence.WELL-ADMINISTERED FINANCIALACQUISITION.• Community stakeholders need to possessan understanding and have access tobroad and diverse funding sources inorder to finance recovery efforts.• The community’s knowledge andprofessional administration of externalprograms greatly aid the recoveryprogress.• Funders and resource providerscollaborate to provide program flexibilityand implement finance planning.Recovery management and programadministration collaborate in a postdisasterenvironment.• Recovery management programssupport the development and maintenanceof adequate financial monitoring andaccounting systems for new and large levelsof investment. Management programsACHIEVING DISASTER RECOVERYPage 15

National Disaster Recovery Frameworkinclude systems that detect and deter fraud,waste and abuse.• Federal recovery expenditures maximizethe use of local businesses to promotelocal economic development.ORGANIZATIONAL FLEXIBILITY.• Organizational structures forcoordinating recovery assistance arescalable and flexible.• Recovery structures at all governmentlevels evolve, adapt and develop newskills and capacities to address thechanging landscape of post-disasterenvironments.• Functional and effective intergovernmentalrelations influence the efficiencyof the recovery process.• Organizational flexibility facilitates theapplication of laws, regulations andpolicies in the context of disaster andenhances the government’s adaptabilityto govern in unforeseen incidents.• Flexible staffing and managementstructures enhance the adaptability of thegovernmental structure.• Increased pre-disaster partnershipshelp reduce or avoid the challenges ofestablishing new partnerships in a postdisasterenvironment.• Organizational flexibility is compatiblewith the integrity and accountability oftaxpayer-funded programs.RESILIENT REBUILDING.• The community rebuilds a sustainablefuture inclusive of ecological, economicand local capacity considerations.• The recovery is an opportunity forcommunities to rebuild in a mannerwhich reduces or eliminates risk fromfuture disasters and avoids unintendednegative environmental consequences.• Communities incorporate strongerbuilding codes and land use ordinances.Vulnerable structures are retrofitted,elevated or removed from harm.• Community members, businesses andlocal governments incorporate riskreductionstrategies into governance andlocal decisionmaking.MEASURING RECOVERYPROGRESS.Measuring and communicating the progressof recovery increases public confidence in therecovery process by promoting transparency,accountability and efficiency. It enables localleadership to identify ongoing recovery needsand engages partners in providing assistanceand problem resolution. Recovery progressserves as a tracking mechanism for improvingand adjusting recovery strategies and activitiesand ensuring continuing improvement.Communities determine how to qualify andquantify their progress. They measure progresstoward recovery holistically, recognizing thatrecovery outcomes and impacts are measuredbeyond a single criterion such as dollars spentor assistance delivered on a program-byprogrambasis. The following are successfulstrategies for measuring progress:• Recognize that recovery progress hasvariables not attributable to any oneACHIEVING DISASTER RECOVERYPage 16

National Disaster Recovery Frameworkprogram or government agency. Overallrecovery success depends upon theinteraction of a wide range of public,nonprofit and private programs andinitiatives, good planning, local capacity,leadership, effective decisionmaking andthe building of public confidence.• Establish systems that track pre-disasterbaseline conditions, overall recovery ofindividuals as well as the reconstructionand redevelopment of infrastructure,economy, health, social and communityservices and government functions.• Ensure disaster preparedness and recoveryplanning is integrated with communitywidecomprehensive and hazard mitigationplanning to capitalize on opportunitiesthat minimize the risk to all hazards andstrengthen the ability to withstand andrecover from future disasters.• Select indicators that reflect the coreprinciples outlined in Chapter 4 of thisframework. Indicators apply to recoverypriorities and resource needs and setrealistic expectations and milestones forcommunity members, stakeholders andsupporting agencies.• Ensure full community participationin developing metrics in coordinationwith local, State, Tribal and Federalpartners. Include persons with disabilitiesand others with access and functionalneeds, individuals with limited Englishproficiency, seniors, members ofunderserved populations and advocatesrepresenting the unique needs of children.• Leverage technology and systemsinnovations to achieve goals thatresult in greater information sharing,accountability and transparency.• Assure that recovery activities respectthe civil rights and civil liberties ofall populations and do not result indiscrimination on account of race, color,national origin (including limited Englishproficiency), religion, sex, age or disability.• Ensure continuous improvement byevaluating the effectiveness ofrecovery activities.Government agencies and private organizationsthat provide assistance are encouraged to havea system of tracking their coordination andassistance efforts, ensuring accountability andenabling prompt adjustments to meet ongoingand changing needs.The suggested considerations listed below arealso applicable for developing metrics.begin side text box.BASELINE IMPACT ASSESSMENT.Provides a basis to define known communityrecovery issues to help understand the extentand dimensions of disaster impacts in order tochart a path to a realistic recovery end state.DESIRED OUTCOME.Focuses on recovery impacts and overall results,not just a target number (e.g., number offamilies in permanent housing versus numberof housing units constructed).CROSS-SECTOR ASSESSMENT.Tracks progress across all sectors, includingbut not limited to, housing, environmental,business, employment, infrastructure, access toessential health and social services and overallcommunity accessibility.END SIDE TEXT BOX.ACHIEVING DISASTER RECOVERYPage 17

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CHAPTERNational DisasterRecovery Framework6. RECOVERY ROLES ANDRESPONSIBILITIES.Successful recovery depends on all recoverystakeholders having a clear understandingof pre- and post-disaster roles andresponsibilities (Figure 2). In keepingwith the National Disaster Recovery Framework(NDRF) principles, clearly defined roles andresponsibilities are a foundation for unity ofeffort among all recovery partners to jointlyidentify opportunities, foster partnershipsand optimize resources.INDIVIDUALS ANDHOUSEHOLDS.Individuals and families need to plan andbe prepared to sustain themselves in theimmediate aftermath of a disaster. Thosewho prepare reduce personal stress, andthey enhance their ability to undertake theirown recovery and shape the future of theircommunity’s recovery.The extent to which individuals and familiesadequately prepare for disasters has animpact on the success of the recovery. Thisincludes carrying adequate insurance andmaintaining essential levels of supplies, suchas medication, food and water. Resourcesto help individuals and families prepare areavailable through websites and publicationsof various organizations that are active indisasters, including local, State, Tribal andFederal agencies. Maintaining awareness ofpublic information on the recovery processhelps to eliminate confusion and uncertainty.Recommended roles and activities ofindividuals and families are detailed inAppendix B.PRIVATE SECTOR – BUSINESSCOMMUNITY AND CRITICALINFRASTRUCTURE OWNERSAND OPERATORS.The private sector plays a critical role inestablishing public confidence immediatelyafter a disaster. When the private sector isoperational, the community recovers morequickly by retaining and providing jobsand a stable tax base. If local leadership andthe business community work togetherpre-disaster and develop a conceptualrecovery plan, the public is more likely to beoptimistic about the community’s ability torecover post-disaster.Additionally, the private-sector owns andoperates the vast majority of the Nation’scritical infrastructure, such as electric power,financial and telecommunications systems.These entities play a major role in therecovery of a community or region asa whole.RECOVERY ROLES AND RESPONSIBILITIESPage 19

National Disaster Recovery FrameworkFIGURE 2. COMMUNITY-FOCUSED RECOVERY.Partnerships at every level are supported by Stateand Federal authorities and encouraged throughtwo-way communication.RECOVERY ROLES AND RESPONSIBILITIESPage 20

National Disaster Recovery FrameworkIt is critical that disaster recovery officialsrecognize the importance of partnershipand create coordination opportunities duringpre-disaster planning with private sectorleaders. The resources and capabilities of theprivate-sector, including utilities, banks andinsurance companies, can play an importantrole in encouraging mitigation and creatinggreater resilience in a community. Forexample, local banks can create products toencourage individuals and businesses to befinancially prepared for disasters and workwith small businesses to develop businesscontinuity plans. Insurance companies caneducate community members on risks, reachout to underserved populations and workwith local, State and Tribal governments tofind ways to provide coverage for familiesand businesses in the community.Major players in recovery efforts, businessesand critical infrastructure owners andoperators have an important responsibilityto improve disaster resilience by mitigatingrisks and increasing disaster preparedness.Businesses should adopt and exercisebusiness continuity plans to minimizecostly operational disruptions and purchaseadequate all-hazards insurance policies.Businesses that plan for disruption are lesslikely to go out of business after a disasterthan those that do not.Recommended private sector roles andactivities are detailed in Appendix B.NONPROFIT SECTOR.The nonprofit sector plays a vital role inthe recovery of impacted communities.Nonprofits include voluntary, faith-basedand community organizations, charities,foundations and philanthropic groupsas well as professional associations andacademic institutions. The formidablevalue of the work of these stakeholdersresides in community recovery planning,case management services, volunteercoordination, behavioral health andpsychological and emotional support,technical and financial support, housingrepair and construction that meetsaccessibility/universal design standards, andproject implementation.Nonprofit-sector support is provided by arange of organizations from small locallybasednonprofits to national organizationswith extensive experience in disasterrecovery. Nonprofits directly supplementand fill gaps where government authorityand resources cannot be applied. Resourcefulfundraisers, grantors and investors injectneeded financial resources to meet recoveryneeds and obligations that otherwise are notfunded by a government program.Many organizations originate from or staybehind in the impacted community tocontinue to mobilize support and provideservices. Particularly in a large-scale orcatastrophic disaster, they play a criticalrole in the implementation of an inclusive,locally-led recovery organization and processduring the transition as Federal and Staterecovery support recede and local leadershipand community recovery organizationscomplete the mission.Nonprofit organizations are critical forensuring participation and inclusion of allmembers of the impacted community. Manynonprofits act as advocates for, or assistanceproviders to, a wide range of membersof the community, such as individualswith disabilities and others with accessRECOVERY ROLES AND RESPONSIBILITIESPage 21

SEE FOOTNOTENational Disaster Recovery Frameworkand functional needs, children, seniors,individuals with limited English proficiencyand other underserved populations. It iscrucial that these individuals and familiesreceive timely recovery information,participate in the recovery process andunderstand and have access to resources toachieve recovery.Recommended nonprofit sector roles andactivities are detailed in Appendix B.LOCAL GOVERNMENT.The local government has the primary roleof planning and managing all aspects of thecommunity’s recovery. Individuals, familiesand businesses look to local governments toarticulate their recovery needs. Those plansshould include a Continuity of Government (C O G)and Continuity of Operations (C O O P) Plan 2 . Localgovernment may become overwhelmed andneed staffing, recovery expertise, leadershipor other assistance. State and Federalofficials work with local governments in thedevelopment and implementation of theirplans and recovery efforts when neededand requested.The majority of mitigation measuresare adopted, codified and enforced atthe local level. While there are State andFederal standards, it is often up to the localgovernment to adopt and enforce them.Examples include participating in the NationalFlood Insurance Program (N F I P) and enforcingbuilding codes.Local governments also lead the communityin preparing hazard mitigation andrecovery plans, raising hazard awarenessand educating the public of available toolsand resources to enhance future resilience(e.g., Chapter 7 of the Americans with DisabilitiesAct (A D A) Best Practices Tool Kit, concerningemergency preparedness and people withdisabilities). Government agencies playroles as employers and need their ownplans to protect and assist employees duringemergencies. Finding opportunities to sharepublic information on the recovery processis important to maintaining communitycoordination and focus.Recommended local government roles andactivities are detailed in Appendix B.,STATE GOVERNMENT.States lead, manage and drive the overallrecovery process and play the central role incoordinating recovery activities that includeproviding financial and technical support.States oversee regional coordination ofrecovery, set priorities and direct assistancewhere it is needed.States are a conduit to local and Tribalgovernments for key Federal recoveryassistance programs. In addition to managingFederally-provided resources, Stategovernment may develop programs or securefunding that can help finance and implementrecovery projects. An example of this typeof assistance is helping communities acquireappropriate insurance coverage pre-disasteror issuing bonds after a disaster. Whereadditional needs exist, States can reassignexisting internal resources to streamline andexpedite recovery, such as forming a newor ad hoc State recovery agency. States playan important role in keeping the publicinformed through strategic messaging andworking with all other stakeholders toprovide an information distribution process.State government agencies are also employersfootnoteRECOVERY ROLES AND RESPONSIBILITIES2.For descriptions of the C O G and C O O P, see U.S. Department ofHomeland Security, Federal Continuity Directive 1 (FCD 1): FederalExecutive Branch National Continuity Programs and Requirements,http://www.fema.g o v/pdf/about/offices/fcd1.pdfEnd of footnote.Page 22

National Disaster Recovery FrameworkFederal agencies may be directed by thePresident to provide Federal-to-Federal orother support. Federal agencies withoutrecovery missions may directly or indirectlycontribute to meeting recovery needs ofaffected communities by delivering assistanceprovided under their normal authority. TheFederal Government coordinates its activities,programs and funding sources to facilitateadaptations and adjustments consistent withother competing requirements, includingother disaster response and recovery needs.Prior to a disaster, the Federal Governmenthas a responsibility to assist local, State andTribal governments to prepare for recoveryby providing guidance and tools for planningand preparedness activities. Althoughdisasters and localities vary so widely thatmost recovery planning must transpire at thelocal level, some centralized planning andFederal guidance or standards are necessaryto ensure coordination of outside resourcesand assistance. Large-scale and catastrophicincidents (e.g., the Midwest Floods of 1993and 2008, Hurricanes Katrina and Rita in2005, the Gulf Coast Oil Spill of 2010, ora potential New Madrid Earthquake) oftencross municipal, county, State or evenTribal jurisdictions. National coordinationencourages unity of effort amonggovernment agencies and nongovernmentalorganizations (N G Os) to achieve the optimalbenefit for those impacted.Government requires that all recipientsof Federal assistance comply with civilrights obligations under Section 5 04 of theRehabilitation Act and Title V I of the Civil RightsAct of 19 64, and the Age Discrimination Act of1975. Government agencies also play roles asemployers and need to have their own plansto protect and assist their employees duringemergencies.Recommended roles and activities forthe Federal Government are detailed inAppendix B. Roles and responsibilitiesof the Federal agencies that comprise theRecovery Support Functions (RSFs) aredetailed in the RSF Annexes.From the Federal perspective, a successfulrecovery optimizes the return on Federalinvestment. This includes reducing futurerisk from hazards and increasing resiliencewhile adopting courses of action consistentwith national laws and policies. The FederalRECOVERY ROLES AND RESPONSIBILITIESPage 24

National DisasterRecovery FrameworkCHAPTER7. LEADERSHIP.Achieving Disaster Recovery (Chapter 5)describes the components of a successfuldisaster recovery management system forall levels of government decisionmaking.Coordination, integration, communityengagement and management are prominentsystem elements in keeping with the NationalDisaster Recovery Framework (NDRF) Core Principlesof Leadership. To lead these critical disasterrecovery functions, this chapter describes:• Recommended Recovery Manager andRecovery Coordinator positions at thelocal, State and Tribal levels..• New designated Federal DisasterRecovery Coordinator (FDRC) positions..• National-level disaster recoverycoordination..LOCAL DISASTER RECOVERYMANAGERS, STATE ANDTRIBAL DISASTER RECOVERYCOORDINATORS.The National Disaster Recovery Framework (NDRF)strongly recommends that State governors aswell as local government and Tribal leadersprepare as part of their disaster recovery plansto appoint Local Disaster Recovery Managers(LDRMs) and State/Tribal Disaster RecoveryCoordinators (SDRCs/TDRCs) to lead disasterrecovery activities for the jurisdiction.The role of the LDRMs, SDRCs and TDRCsis to organize, coordinate and advance therecovery at the local, State or Tribal level. Theexperience and skill sets of these individualsshould include a strong basis in communitydevelopment and good knowledge ofthe community’s demographics. Whilethese positions will often interact with theemergency management community, itis not necessary that these individuals beemergency management professionals. Theirprimary role is to manage and coordinate theredevelopment and building of community.In addition, the individuals occupying thepositions should be able to represent andspeak on behalf of their respective chiefexecutives (e.g., mayor, governor, Triballeader). The LDRMs and TDRCs serve as thejurisdiction’s primary point of contact (P O C)with the SDRC.In large-scale disasters and catastrophicincidents where a Federal role may benecessary, the SDRC and/or TDRC is theprimary interface with the Federal DisasterRecovery Coordinator (FDRC). Depending onthe severity of the incident and anticipatedscope and duration of disaster recoveryefforts, the State Coordinating Officer (SCO)may fulfill the Recovery Coordinator roleunder the Robert T. Stafford Disaster Relief andEmergency Assistance Act (Stafford Act). However,after large-scale disasters or catastrophicincidents, States are encouraged to appoint aseparate position to ensure recovery activitiesare well-managed while extended responseand short-term recovery activities areongoing.RECOVERY COORDINATORSPage 25

National Disaster Recovery FrameworkTable 1a.RECOVERY COORDINATORSPage 26

National Disaster Recovery FrameworkTable 1bRECOVERY COORDINATORSPage 27

National Disaster Recovery FrameworkTable 1cRECOVERY COORDINATORSPage 28

National Disaster Recovery FrameworkSEE FOOTNOTEResponsibilities of LDRMs and SDRCs/TDRCs may include, but are not limited tothose listed in Tables 1a, 1b and 1c on thepreceding three pages. In some cases, theseresponsibilities overlap, as shown.FEDERAL DISASTER RECOVERYCOORDINATOR.While disaster-impacted jurisdictionsmust necessarily and immediately focuson emergency response activities, thedecisions made very early after a disasterinfluence recovery. In large-scale disastersand catastrophic incidents where a Federalrole may be necessary, the Federal DisasterRecovery Coordinator (FDRC) is a focal pointfor incorporating recovery and mitigationconsiderations into the early decisionmakingprocesses. The FDRC monitors the impactsand results of such decisions and evaluatesthe need for additional assistance andadjustments where necessary and feasiblethroughout the recovery.In these situations, the FDRC works as adeputy to the Federal Coordinating Officer(FCO) for all matters concerning disasterrecovery. The FDRC is responsible forfacilitating disaster recovery coordinationand collaboration between the Federal,Tribal, State and local governments, theprivate sector and voluntary, faith-basedand community organizations. The FDRCpartners with and supports the Local DisasterRecovery Manager (LDRM) and the Stateand/or Tribal Disaster Recovery Coordinator(SDRC/TDRC) to facilitate disaster recoveryin the impacted State or Tribal area.footnote3.Note that the primary mission of the U.S. Department of Defense (D O D)and its components is national defense. Because of this critical role,resources are committed after approval by the Secretary of Defense or atthe direction of the President. When Federal military and civilian personneland resources are authorized to support civil authorities, command ofthose forces remain with the Secretary of Defense.End of footnote.FDRC AUTHORITY.Nothing in the National Disaster RecoveryFramework (NDRF) alters or impedes the abilityof local, State, Tribal or Federal departmentsand agencies to carry out their specificauthorities or perform their responsibilitiesunder all applicable laws, ExecutiveOrders and directives. FDRC authority tofacilitate disaster recovery coordination andcollaboration is derived from the appropriatedisaster recovery authority that may apply tothe incident.Other Federal departments and agenciescarry out their disaster recovery authoritiesand responsibilities within the overarchingconstruct of the NDRF. Additionally, nothingin the NDRF is intended to impact or impedethe ability of any Federal department oragency to take an issue of concern directlyto the President or any member of thePresident’s staff 3 . For a large-scale disaster orcatastrophic incident declared under the RobertT. Stafford Disaster Relief and Emergency Assistance Act(Stafford Act), the FDRC works as a deputyto the FCO for all matters concerningdisaster recovery.FDRC QUALIFICATIONS,SELECTION AND CREDENTIALING.FDRCs are selected based on their knowledgeand experience with disaster recovery,mitigation, community development,resiliency planning, public administrationconcepts, and the range of Federal programsand interagency processes required foreffective implementation of recoveryinitiatives. In addition to existing subjectmatterexpertise, FDRCs maintain trainingand credentialing emphasizing consistent andeffective practices. Qualified FDRCs aresenior level officials empowered to directlyRECOVERY COORDINATORSPage 29

National Disaster Recovery Frameworkaccess designated senior officials in everyFederal agency that may contribute torecovery. FEMA will appoint the FDRC.FDRC PRE-DISASTER REGIONALENGAGEMENT.The responsibilities of the FDRC requirean understanding of pre-disaster recoveryplanning as well as post-disaster recoveryleadership and coordination. Since eachcommunity is unique in terms of its size,population and challenges, the developmentof effective recovery efforts will need to becrafted to fit each individual region’s risksand needs. Therefore, it will be extremelyhelpful to the success of an FDRC to have preestablishedrelationships with persons at theFederal, Tribal, State and local levels, includingthe private and nonprofit sectors. In large-scaleand catastrophic incidents where a Federalrole may be necessary, the FDRCs have theknowledge, connections, and relationships toimmediately begin effective disaster recoverycoordination.FDRC POST-DISASTERRESPONSIBILITIES.In large-scale disasters and catastrophic incidentswhen it may be necessary to deploy an FDRC inpartnership with the State the FDRC’s post-disasterresponsibilities may include:• Develop a strategic approach forcoordinating Federal assistance andpolicies. The intent is to facilitate timely,sufficient and effective Federal assistanceto the impacted State or Tribal governmentto support its disaster recovery.• Work with the impacted community toestablish relevant recovery measures.The aim is to track overall recoveryprogress and support the communityin meeting its recovery goals in termsof outcome, milestones and budget;to make timely adjustments to therecovery effort if needed; and to definerelationships between new players andthe existing framework.• Promote inclusiveness in recovery.The intent is to increase participationof stakeholders to ensure innovationsand solutions that support recovery areconsidered. The community shouldprovide a forum to engage disasterimpactedindividuals, particularlyindividuals with disabilities, individualswith limited English proficiency, seniors,members of underserved populations andadvocates for children so that their needsand contributions are an integral part ofthe recovery process and outcome.• Facilitate the development of aunified communications strategy.The objective is to have all stakeholderswork in concert to manage expectationsand to communicate a clear, consistentmessage to the public and ensurean accessible, comprehensive andculturally and linguistically appropriatecommunications outreach strategy.• Coordinate Federal assistance tosupport community recovery planning.The goal is to supplement local capacitywith needed expertise to conduct asuccessful planning process that resultsin a recovery plan that is publiclysupported, actionable and leveragesavailable resources.• Work with the impacted community toincorporate mitigation and resiliencebuildingmeasures into recovery plansand implementation. The goal is toRECOVERY COORDINATORSPage 30

National Disaster Recovery Frameworkminimize the community’s risk toall hazards and make the recoveredcommunity safer, stronger, sustainableand more resilient from any man-madeor natural hazards.• Coordinate the Recovery SupportFunction (RSF) operations andactivities. The FDRC consults withthe RSF field coordinators to conducta recovery impact assessment andrecommend activation of the appropriateRSFs. The objective is to focus Federalresources on the most pertinent recoveryneeds and to promote partnershipsbetween the Federal Government andstakeholders at the local, State andTribal levels.• Facilitate Federal funding streamsand solutions to assistance gaps andoverlaps. The intent is to maximizethe benefit from Federal funds that animpacted community is qualified toreceive, help prevent recovery delays,resolve rule and regulatory conflicts tothe extent possible and help eliminatepossible duplication of assistance incoordination with local, State and Tribalrecovery coordinators.• Reinforce the importance ofcompliance with Federal civil rightslaws when using Federal funds. Federalfunding carries with it the responsibilityto comply with anti-discriminationlaws. Federally-funded programs andactivities should not intentionally orunintentionally exclude groups of peopleas a result of race, color, national origin,limited English proficiency, religion, sex,age or disability.Annexes, Standard Operating Procedures(SOPs) and other supporting tools anddocuments will provide additionalguidance relating to FDRC post-disasterresponsibilities.ACTIVATION, TRANSITION ANDDEMOBILIZATION.Activation, transition and demobilization ofthe FDRC and Recovery Support Functions(RSFs) depends on the magnitude ofthe disaster, requirements of affectedcommunities, and availability andappropriateness of Federal resources. Duringlarge-scale and catastrophic incidents, theFDRC may be deployed to serve as Deputyto the FCO and primary advisor to the FCOon all recovery issues. The FDRC supportsthe FCO and coordinates Federal recoveryoperations on his or her behalf.The NDRF employs an assessment protocol toensure a scalable, flexible, adaptable and costeffectiveapproach to recovery activities andto determine which coordination structuresare necessary and appropriate under thecircumstances. From this assessment, theFCO, in coordination with the State, activatesthe appropriate Recovery Support Functions(RSFs), if necessary.The FDRC coordinates with the FCO and theNDRP at FEMA Headquarters on the progressof recovery, including identifying policy andprogram challenges. The FDRC may also becalled upon to brief senior level officials inthe Executive Branch and Congress on thepace, challenges and needs of the recovery,and to propose and coordinate solutions.The FDRC leads the Federal Government’seffort to develop a Recovery Support Strategy thatsupports the recovery needs of impactedcommunities, State and Tribes.RECOVERY COORDINATORSPage 31

National Disaster Recovery FrameworkFIGURE 3. RECOVERY FUNCTIONS (FDRC, SDRC AND RSFs)WITHIN THE JOINT FIELD OFFICE CHAIN OF COMMAND.JFO organizational structure for the newly developed positions of FDRC and SDRC and the six RSFs established within the NDRF.RECOVERY COORDINATORSPage 32

National Disaster Recovery FrameworkThe Recovery Support Strategy articulates how allFederal agencies participate in the recoveryand coordinate support based on the needsidentified through the impact assessmentprocess and local, State and Tribal recoveryplans. It includes a comprehensive timeline,with key milestones and benchmarksthat guide the ongoing operations andeventual demobilization of the FDRC andother Federal resources in the impactedarea. Throughout the recovery, the FDRCfacilitates the coordination of informationand activities among the Federal agencieswhose programs, technical assistance andexpertise are relevant to recovery, within theframework of the Recovery Support Strategy.Transition. The coordination between ESFsand RSFs is the responsibility of the FCO/RSF/FDRC team. Disaster operations vary based onthe nature, scope and complexity of the specificincident. Therefore, the timing of the transitionfrom the response to initial recovery operationsand then to recovery varies. During responseand in the early stages of recovery, RSFs maybe deployed while ESFs are still operational andthe two coexist until the ESFs fully demobilize.Working together in collaboration with Tribal,State and local authorities, the FCO determineswhen it is appropriate to begin phasing out theEmergency Support Function (ESF) and JointField Office (JFO) elements associated with theNational Response Framework (NRF).In large-scale disasters and catastrophicincidents, the FDRC takes over the lead fromthe FCO, when the FCO demobilizes, tocontinue management of Federal recoveryresources, for those incidents that requirecontinued significant interagency disasterrecovery coordination. This includescoordination of the longer-term RSFstructures associated with the NDRF thatcontinue operation.Transition involves a conscious effort, fromday one of the recovery operation, to activelyengage and encourage local, State and Triballeadership and ownership of the recoveryprocess. It provides coordination support andtechnical assistance, with the intent tosupplement, not substitute, local leadership,ownership and capabilities.Using the Recovery Support Strategy as a guide,the FDRC continuously tracks the recoveryprogress, evaluates the adequacy and paceof recovery assistance and works with local,State, Tribal, Federal, nonprofit, faithbasedand private-sector stakeholders toidentify gaps and/or additional supportneeds. The FDRC is responsible for closelycoordinating this progress, tracking timelinesand communicating information with local,State and Tribal officials as well as otherkey stakeholders. Close communicationand coordination with the local, Stateand Tribal governments and stakeholdersthroughout the recovery process reinforcesa shared understanding of the objectives andexpectations for the unified disaster recoveryeffort and eventual Federal demobilization.Demobilization. How long the FDRCremains on-site in the disaster area dependsupon the scale of the disaster and on-sitecoordination requirements. Regardless ofthe length of sustained on-site presence, theFDRC may remain closely engaged with localand State officials for an extended period.When the impacted local, State or Tribalgovernment has recovered the capacitiesand resources needed to manage its disasterrecovery effort, the FDRC has alreadycommenced — if not nearly completed— the transition of its recovery role andresponsibility to the LDRMs and SDRCs/TDRCs. This transition involves regionalRECOVERY COORDINATORSPage 33

National Disaster Recovery FrameworkFederal staff assuming greater roles incoordinating ongoing Federal support.Once this transition and coordination withthe impacted State and/or Tribal governmentis complete the FDRC demobilizes from themission and exits the impacted area.DISASTER RECOVERYCOORDINATIONDisaster recovery coordination occursthrough partnerships with the RecoverySupport Function (RSF) agencies. TheNational Disaster Recovery Planning (NDRP)Division within the Recovery Directorateof the Office of Response and Recovery atFEMA Headquarters serves as the focal pointfor all interagency coordination for disasterrecovery issues at the national level and isresponsible for the ongoing implementationof the National Disaster Recovery Framework (NDRF).The NDRP Division will also facilitateregional coordination among Federal DisasterRecovery Coordinators (FDRCs) following alarge-scale disaster or catastrophic incidentthat requires significant interagency recoveryresource coordination in multiple States.The NDRP Division ensures that resiliency,mitigation, inclusiveness and other centralconcepts of the NDRF are appropriatelyaddressed in disaster recovery operations. Animportant function of this component is toimprove coordination and delivery of Federalprograms that assist with disaster recovery,increase local and State disaster recoverymanagement capacity and improve disasterresiliency nationwide.PRE-DISASTER ROLE.The NDRP Division oversees the designation,training, credentialing, deployment andevaluation of Federal Disaster RecoveryCoordinators (FDRCs). It also coordinatesand supports the efforts of the national RSFcoordinating agencies (Chapter 8) to developannexes, Standard Operating Procedures(S O Ps) and other supporting toolsand documents.The NDRP Division, in close collaborationwith the RSF agencies, coordinates Federalguidance and training to assist local, State andTribal governments with disaster recoverypreparedness. This includes planning,organizational development and managementcapacity building, building communityresilience, training, exercise, evaluationand improvement. In addition, the Divisioncaptures, manages and ensures sharing of arepository of disaster recovery best practices,lessons learned and other data.The NDRP Division also is charged withconvening RSF coordination meetings, asnecessary, to discuss ongoing recoveryoperations and agency efforts to promulgateresiliency into steady-state programs andpolicies.POST-DISASTER ROLE.The NDRP Division is a primary Federalfocal point for disaster recovery support.After an incident, the NDRP Division mayprovide technical assistance to the FederalCoordinating Officer (FCO) to determine if aFDRC deployment is appropriate. During opendisaster recovery operations, the Divisionprovides consultation support and facilitatescoordination with executive level leadershipfor the FDRC and deployed RSFs. It alsoRECOVERY COORDINATORSPage 34

National Disaster Recovery Frameworkcoordinates the efforts of the RSF coordinatingagencies at the national level to support theirfield components. In large-scale disasters andcatastrophic incidents, the Division supportsthe deployed FDRC to coordinate recoveryefforts and the deployed RSFsPage 35

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CHAPTERNational DisasterRecovery Framework8. RECOVERY SUPPORT FUNCTIONS.The Recovery Support Functions (RSFs)comprise the National Disaster Recovery Framework’s(NDRF’s) coordinating structure for keyfunctional areas of assistance. Their purposeis to support local governments by facilitatingproblem solving, improving access toresources and by fostering coordinationamong State and Federal agencies,nongovernmental partners and stakeholders.The RSFs created within the NDRF bringtogether the core recovery capabilities ofFederal departments and agencies and othersupporting organizations — including thosenot active in emergency response — to focuson community recovery needs. The RSFs areorganized into six manageable components andthrough the RSFs, relevant stakeholders andexperts are brought together during steadystateplanning and when activated post-disasterto identify and resolve recovery challenges.RSFs and stakeholders organize and requestassistance and/or contribute resources andbegin side text box.RECOVERY SUPPORT FUNCTIONS.Community Planning andCapacity Building.Economic.Health and Social Services.Housing.Infrastructure Systems.Natural and Cultural Resources.END SIDE TEXT BOX.solutions. Together, these RSFs help facilitatelocal stakeholder participation and promoteintergovernmental and public-privatepartnerships.DIFFERENCES BETWEEN ESFsAND RSFs.The Recovery Support Function (RSF)structure coexists with and builds upon theEmergency Support Functions (ESFs) underthe National Response Framework (NRF). RSFsare different from ESFs in that they havedifferent mission objectives, partnerships,approaches, time spans and organizationalstructure; additionally, the players and skillsets involved may be different.MISSION OBJECTIVES.The objective of the RSFs is to facilitate theidentification, coordination and deliveryof Federal assistance needed to supplementrecovery resources and efforts by local, Stateand Tribal governments, as well as privateand nonprofit sectors. An additional objectiveis to encourage and complement investmentsand contributions by the businesscommunity, individuals and voluntary,faith-based and community organizations.These RSF activities assist communitieswith accelerating the process of recovery,redevelopment and revitalization.RECOVERY SUPPORT FUNCTIONSPage 37

National Disaster Recovery FrameworkPLAYERS AND SKILL SETS.RSF staff may require different skill sets thantheir colleagues from the same agenciesworking under the ESF structure. Forexample, the skills needed to provide disastersheltering services under ESF #6 are differentthan those necessary to address long-termhousing solutions supported by the HousingRSF.PARTNERSHIPS.RSFs involve partners in the local, State andTribal governments and private and nonprofitsectors not typically involved in emergencysupport functions but critically needed indisaster recovery. These new partners mayinclude public and private organizations thathave experience with permanent housingfinancing, economic development, advocacyfor underserved populations and long-termcommunity planning.APPROACHES.The processes used for facilitating recovery aremore flexible, context based and collaborativein approach than the task-oriented approachused during the response phase of an incident.Recovery processes should be scalable andbased on demonstrated recovery needs.TIME SPANS.Whereas the ESFs typically operate withina time span of weeks and months, the RSFoperational timeframe is months to years.RSFs will likely activate before all ESFsdemobilize; therefore they may coexistwithin the same operation for a periodof time. Neither ESFs nor RSFs have apredetermined point at whichthey demobilize.ORGANIZATIONAL STRUCTURE.The RSFs are:• Community Planning and CapacityBuilding.• Economic.• Health and Social Services.• Housing.• Infrastructure Systems.• Natural and Cultural Resources.RELATIONSHIP BETWEEN ESFsAND RSFs.Recovery cannot wait until those occupiedwith response and short-term recoveryactivities have time and space to startthinking about recovery. A discrete andwell-resourced recovery focus, operating atthe same time as response activities, isestablished to ensure that communitiestransitioning out of response are positionedto find themselves ahead of the curve inorganizing and planning for majorreconstruction and redevelopment necessaryfor recovery.As the level of response activities declines andrecovery activities accelerate, the FederalDisaster Recovery Coordinator (FDRC) willengage with the Recovery Support Function(RSF) agencies to organize and coordinateFederal recovery assistance. During this earlyrecovery phase, the FDRC and the RSFcoordinators are working closely withEmergency Support Function (ESF) leads toshare information about impacts, assistanceprovided and working relationships at alllevels. There is necessarily some overlapbetween the ESF and RSF missions, but as theRECOVERY SUPPORT FUNCTIONSPage 38

National Disaster Recovery FrameworkESF requirements diminish, and the recoveryissues take center stage, the RSFs take overthe residual ESF activities that are associatedwith recovery. The timing of the transitionfrom ESF to RSF depends on the nature of theactivity, and may vary considerably from RSFto RSF. The Federal Coordinating Officer(FCO) determines when a specific ESF is nolonger required.It is essential to the success of the NationalDisaster Recovery Framework (NDRF) that Federalpartners address responsibilities across therecovery continuum, including preparedness,mitigation and development activities as wellas post-incident stabilization and recoveryactions. The coordinator for each RSF createsdetailed supporting guidance and tools forrecovery implementation. The developmentof these RSFs is an iterative process thatincludes addressing gaps in authorities andresources.RSF ROLES ANDRESPONSIBILITIES.Each Recovery Support Function (RSF) hasa designated coordinating agency alongwith primary agencies and supportingorganizations with programs relevant tothe functional area. The RSF coordinatingagency, with the assistance of the FederalEmergency Management Agency (FEMA),provides leadership, coordination andoversight for that particular RSF. Throughoutthe preparedness, response and recoveryphases, the coordinating agency ensuresongoing communication and coordinationbetween the primary agencies and supportorganizations, and between the Federalagencies and corresponding local, State andTribal authorities and nonprofit and privatesector organizations.An RSF primary agency is a Federal agencywith significant authorities, roles, resourcesor capabilities for a particular function withinan RSF. Primary agencies orchestrate Federalsupport within their functional area for anaffected State and may lead interagency fieldassessment or support teams as necessary.Support organizations are those entitieswith specific capabilities or resources thatsupport the primary agency in executing themission of the RSF. The principal distinctionbetween a primary and a supporting agencyis the frequency with which the agencymay be expected to actively participatein a RSF operation. RSF agencies provideassistance when requested by the FederalDisaster Recovery Coordinator (FDRC) or thedesignated RSF coordinator, consistent withtheir authority and resources, or as directedpursuant to section 402 of the Robert T. StaffordDisaster Relief and Emergency Assistance Act (StaffordAct).When coordinating agencies are activatedto lead an RSF, primary agencies andsupporting organizations are expected to beresponsive to RSF-related communicationand coordination needs.NDRP DIVISION AND FDRCThe National Disaster Recovery Planning(NDRP) Division at FEMA Headquartersserves as a focal point for all interagencycoordination for disaster recovery issues atthe headquarters level. The NDRP facilitatesand coordinates Recovery Support Function(RSF) activities at the national level throughthe designated RSF coordinating andprimary agencies.RECOVERY SUPPORT FUNCTIONSPage 39

National Disaster Recovery FrameworkFIGURE 4. SCENARIOS OF DIFFERENT LEVELS OF RSF ASSISTANCE.DISASTER WITH MODERATE IMPACT ON TWO SECTORS(Using Housing and Public Health and Health Care, this exampleshows how recovery is supported by the RSF systemwhen impacts occur to a limited number of sectors.)STATEENGAGEMENTRSF:ECONOMICRSF:HEALTH ANDSOCIALSERVICESPublic Healthand Health CareHousingRSF:COMMUNITYPLANNINGANDCAPACITYBUILDINGJFORSF:HOUSINGRSF:NATURAL ANDCULTURALRESOURCESRSF:INFRASTRUCTURESYSTEMSDISASTER WITH CATASTROPHIC IMPACT ON MULTIPLE SECTORS(This example shows how the RSF system is adaptable to align with unique sector designations that each state may organize.In this case, the State organizes its recovery sectors around Public Health and Health Care, Human Services, Education,Transportation and Infrastructure, Public Safety and Flood Protection, Environmental Management and Coastal Restoration.Of these seven sectors, there are three groups with each group being supported by a particular RSF.)STATEENGAGEMENTRSF:ECONOMICRSF:HEALTH ANDSOCIALSERVICESPublic Healthand Health CareHuman ServicesRSF:COMMUNITYPLANNINGANDCAPACITYBUILDINGJFORSF:HOUSINGEducationTransportationandInfrastructureRSF:NATURAL ANDCULTURALRESOURCESRSF:INFRASTRUCTURESYSTEMSPublic SafetyandFlood ProtectionEnvironmentalManagementCoastalRestorationRSF support varies with scale of disaster and sectors impacted.RECOVERY SUPPORT FUNCTIONSPage 40

National Disaster Recovery FrameworkFIGURE 5. COORDINATING STRUCTURE FOR LARGE-SCALEAND CATASTROPHIC EVENTS.LARGE SCALECATASTROPHIC SCALELevels of support and the need for Recovery Liaisons or TeamLeads vary depending on size and scale of a disaster.RECOVERY SUPPORT FUNCTIONSPage 41

National Disaster Recovery FrameworkDuring post-disaster operations, theRSF coordinating agencies, through anappropriate funding vehicle, report to theFederal Disaster Recovery Coordinator(FDRC) and lead their respective RSFmembers to facilitate the identification,coordination and delivery of Federalassistance needed to supplement State andlocal recovery resources. RSF staff deployedto the field, through an appropriate fundingvehicle, report to and are coordinated bythe FDRC assigned to the Joint FieldOffice (JFO).SCALABILITY ANDADAPTABILITY.The Recovery Support Function (RSF)coordinating structure is scalable andadaptable to meet different levels and typesof needs, as well as specific recoveryrequirements of large to catastrophicincidents (Figures 4 and 5). Each of the sixRSFs has a pre-designated coordinatingagency that works with the Federal DisasterRecovery Coordinator (FDRC) to promotecommunication and collaboration among itsmembers. This tiered leadership structurehelps to accommodate the rapid surge ofFederal resources that may be needed to assistin large-scale or catastrophic incidents.Furthermore, through the RSFs, Federalresources are organized into a number offield teams led by the most appropriateprimary agencies to cover multiple localities.Each team is then adapted to comprise onlythe RSF functions (or the Federal departmentor agency) that have the authority, expertiseand resources appropriate to the localityassigned. Based on assessments and recoverymanagement structures established by Stateand local officials, only the RSFs that areneeded deploy.PARTNERSHIP ANDINCLUSIVENESS.The Federal Government uses an inclusiveprocess to ensure coordination with local andState elected officials to identify prioritiesfor the application of Federal resources. Inengaging with disaster-affected communities,the Recovery Support Functions (RSFs)seek to specifically include and address theneeds of individuals with disabilities, thosewith access and functional needs, children,seniors, individuals with limitedEnglish proficiency and members ofunderserved populations.The RSFs work closely with local, State andTribal governments to identify underservedpopulations. The RSFs also coordinate withFederal Tribal Liaisons (FTR), VoluntaryAgency Liaisons (VALs), Disability IssueAdvisors (DIA) and other Federal offices,bureaus and programs when necessary.Local nongovernmental organizations (NG Os) and community groups often haveexcellent relationships with the underservedpopulations. The Federal Disaster RecoveryCoordinators (FDRCs), through the RSFs,collaborate with these organizationsto ensure that programs are culturallyappropriate and that at-risk populations andtheir needs are identified.In all actions, FDRCs and RSFs strive foraffected residents to have a voice; for servicesto reach those who need them most; forequitable distribution of resources; andfor recovery programs appropriate for thesocioeconomic and cultural makeup ofthe community.RECOVERY SUPPORT FUNCTIONSPage 42

National Disaster Recovery FrameworkRESOURCE INFORMATION.Each of the Recovery Support Function(RSF) member agencies brings a wealth ofexpertise and programmatic authorities andresources to the table. Annexes to the NationalDisaster Recovery Framework (NDRF) for each RSFoutline in more detail how RSFs contributeto increases in community disaster resilienceby coordinating to ensure cost-effective andefficient delivery of assistance. The annexeswill also define how risk information andrisk reduction technical expertise will beintegrated into the work of the RSF insupport of community recovery, includingpromotion of the use of the most appropriateand cost-effective building materials duringrebuilding.In addition, the National Disaster Housing Strategy,published in 2009, led to the creation of aweb-based tool that collects data on differentprograms to help communities rebuildafter a disaster. This web-based tool, theNational Disaster Recovery Program Database(NDRPD), is a central location for local, Stateand Tribal governments and emergencymanagers to view recovery programs fromgovernments, for-profit, nonprofit, andcharitable organizations. The NDRPD provideseasy access to information on programs,improves the visibility of programs that canhelp communities and enables communitiesto focus on those programs that can best suittheir needs. The NDRPD may be accessed athttps://asd.fema.g o v/inter/ndhpd/public/home.htm.Although the program information on theNDRPD is available for anyone to view, it isdesigned for local, State and Tribal governmentsand emergency managers. The database’sprograms are not intended for individualapplicants; individuals and families may visithttp://www.disasterassistance.g o v to findand apply for individual assistance related todisaster recovery.OVERVIEW OF RSF MISSIONAND OBJECTIVES.The mission and objectives of each of thesix Recovery Support Functions (RSFs)are specified in the following pages. Onceauthorized and funded, the agenciesparticipating in each RSF collaborativelydevelop operational guidance for use inrecovery preparedness and disaster recoveryoperations. When working under anappropriate funding mechanism, RSFs operateunder the leadership of the Federal DisasterRecovery Coordinator (FDRC). The FDRCutilizes overarching coordinating constructsto effectively manage and consolidate theRSF outputs when there is a large-scale orcatastrophic incident. Their purpose is tosupport local governments by facilitatingproblem solving, improving access toresources, integrating principles of resiliency,sustainability and mitigation and fosteringcoordination among State and Federal agencies,nongovernmental partners and stakeholders.RSFs develop guidance and standard operatingprocedures for rapid activation of theircapabilities to support community recovery.Each RSF identifies relevant statutory and/or regulatory programs, potential capabilitiesand/or limiting factors pertaining to recoverysupport for their functional area of assistance.RSFs provide a forum for interagencycoordination, information sharing andexchange of effective practices. RSFs may alsosupport planning, preparedness, education,RECOVERY SUPPORT FUNCTIONSPage 43

National Disaster Recovery FrameworkThis training page and Intentionally outreach efforts left blank. to enhancecapabilities for recovery. Each RSF works withpartners to identify critical facilities and ensureconsiderations are made to reduce risk pre- andpost-disaster.The full name of the coordinating, primaryagencies and support organizations arefound in Chapter 11, Abbreviations.Their common acronyms are used in thedescriptions of the RSFs for brevity.RECOVERY SUPPORT FUNCTIONSPage 44

National Disaster Recovery FrameworkThe following tables outline the keyaspects of the six RSFs. They identify thecoordinating and primary agencies as wellas the supporting organizations associatedwith each RSF. The mission and functionof each RSF is also explained. Key pre- andpost-disaster activities as well as expectedoutcomes are highlighted for each RSF.RSF: COMMUNITY PLANNING AND CAPACITY BUILDING.Coordinating Agency: DHS/FEMA.Primary Agencies: DHS/FEMA, HHS.Supporting Organizations: CNCS, DHS, DOC, DOI, DOJ, DOT, ED, EPA, GSA, HUD, SBA,TREAS, USDA.Mission.Supporting and building recovery capacities and community planning resources of local, Stateand Tribal governments needed to effectively plan for, manage and implement disaster recoveryactivities in large, unique or catastrophic incidents.Function.The core recovery capability for community planning is the ability to effectively plan andimplement disaster recovery activities, engaging the whole community to achieve theirobjectives and increase resilience. The Community Planning and Capacity Building RSF unifiesand coordinates expertise and assistance programs from across the Federal Government to aidin restoring and improving the ability of Tribes, States and local governments to organize, plan,manage and implement recovery. The RSF assists States in developing a pre- and post-disastersystem of support for their communities. This RSF also has an emphasis on integration ofhazard mitigation throughout the continuum of pre- and post-disaster recovery planning andimplementation. The RSF also serves as a forum for helping to integrate the nongovernmental andprivate sector resources into public sector recovery planning processes (Tables 2, 3 and 4).RECOVERY SUPPORT FUNCTIONSPage 45

National Disaster Recovery FrameworkPRE-DISASTER, THE COMMUNITY PLANNING AND CAPACITY BUILDING RSF• Coordinates the provision of preparedness planning and technical assistance support to aidTribes, States and local governments to develop effective pre-disaster recovery plans thatguide the full range of recovery efforts, both short- and long-term, and ensure all affectedpopulations are included.• Coordinates the resolution of outstanding Federal agency program and policy issuesidentified in after-action and other evaluations that present ongoing barriers or challengesfor effective support for State, Tribal and local community planning and capacity necessaryto facilitate an effective recovery process.• Develops multidisciplinary recovery tools and best practices.• Promotes resiliency measures and enhances coordination of programs that build localleadership capacity, community member involvement, partnerships and education ondisaster preparedness for recovery.• Promotes the importance of pre-disaster mitigation as an essential component of predisastercommunity recovery preparedness planning, including use of multihazard riskassessment.• Identifies and leverages programs that assist communities to prepare, collect and analyzerelevant existing and future data necessary to plan and manage complex disaster recovery.• Integrates mitigation, recovery and other pre-disaster plans and activities into existinglocal, State and Tribal community-wide planning and development activitites, such ascomprehensive plans, land use plans, economic development plans, affordable housingplans, zoning ordinances and other development regulations through technical assistance.• Coordinates educational and cross-training opportunities for key participants incommunity recovery planning and capacity support including, but not limited to:emergency managers; city managers; planning, economic development and other localofficials; and nonprofit and private sector partners for recovery.• Develops pre-disaster partnerships with others such as Federal agency extension programs,universities, national professional associations, and nongovernmental organizations, tofacilitate recovery capacity-building activities and expansion of resources available tocommunities after a disaster for planning and decisionmaking.Table 2.RECOVERY SUPPORT FUNCTIONSPage 46

National Disaster Recovery FrameworkPOST-DISASTER, THE COMMUNITY PLANNING AND CAPACITY BUILDING RSF• Maintains robust and accessible communications throughout the recovery process betweenthe Federal Government and all other partners to ensure ongoing dialogue and informationsharing.• Identifies the range and significance of the disaster’s effects on Tribes, regions and localgovernments in the impacted area.• Coordinates the provision of resources to units of government for recovery planningtechnical assistance and to support recovery capacity and surge needs in a variety ofTribal/county/city functional areas (e.g., city Management, financial management, hazardmitigation and risk assessment, damage assessment, building inspection and permitting);coordinates resources to address other skill sets that communities often lack capacity afterlarge-scale and catastrophic disasters.• Develops community-focused technical assistance teams for uniquely or heavily impactedTribes or communities, integrating the use of Federal agency resources organized underother RSFs.• When activated by the FDRC, the primary and supporting departments and agenciesdeploy in support of the Community Planning and Capacity Building mission.• Identifies and tracks resolution of gaps and conflicts in multiple Federal planningrequirements and assistance programs, as well as programs that support and buildcommunity capacity and surge needs for recovery management.• Coordinates the application and treatment of hazard mitigation and sustainabilityprinciples in Federally supported recovery planning efforts.• Coordinates Community Planning and Capacity Building supported community-centrictechnical assistance teams with the establishment of local unmet needs committees orgroups for assisting individuals and families.• Aids local, State and Tribal governments to identify and integrate the consideration ofall affected stakeholders, including vulnerable populations and persons with disabilities,and individuals with limited English proficiency into the public sector recovery plans anddecisionmaking process.• Provides technical assistance and planning support to aid all levels of government tointegrate sustainability principles, such as adaptive re-use of historic properties, mitigationconsiderations, smart growth principles and sound land use into recovery decisionmakingand planning during the post-disaster period.• Captures after-action recommendations and lessons learned.Table 3.RECOVERY SUPPORT FUNCTIONSPage 47

National Disaster Recovery FrameworkOUTCOMES FOR THE COMMUNITY PLANNING AND CAPACITY BUILDING RSFThrough a coordinated effort that draws from resources of Federal departments, agencies andservices, the Community Planning and Capacity Building RSF provides expertise to ensure:• Enhanced interagency coordination of resources, requirements and support for buildingcommunity capacity and community recovery planning.• Increased community self-reliance and adaptability.• Hazard mitigation and risk reduction opportunities have been integrated into all majordecisions and reinvestments during the recovery process.• An improved planning process that ensures a more effective and efficient use of Federal,State, nongovernmental and private sector funds.• Communities are able to shorten the timeline and improve specific recovery outcomesthrough more effective decisionmaking and management.• Integration of socioeconomic, demographic, risk assessment, vulnerable populations andother important information into recovery planning and decisionmaking activities.• Increased community-wide support and understanding of sustainability and resiliencyprinciples applicable to the opportunities presented during disaster recovery.Table 4.RECOVERY SUPPORT FUNCTIONSPage 48

National Disaster Recovery FrameworkRSF: ECONOMIC.Coordinating Agency: D O C.Primary Agencies: DHS/FEMA, DOC, DOL, SBA, TREAS, USDA.Supporting Organizations: CNCS, DOI, EPA, HHS.Mission.The mission of the Economic RSF is to integrate the expertise of the Federal Government to helplocal, State and Tribal governments and the private sector sustain and/or rebuild businesses andemployment, and develop economic opportunities that result in sustainable and economicallyresilient communities after large-scale and catastrophic incidents.Function.The core recovery capability for economic recovery is the ability to return economic and businessactivities (including agricultural) to a state of health and develop new economic opportunities thatresult in a sustainable and economically viable community. Economic recovery is a critical andintegral part of recovery. Disasters not only damage property, but also entire markets for goods andservices. The speed and effectiveness of returning a community to self-sufficiency and vitality dependupon quickly adapting to changed market conditions, reopening businesses and/or establishing newbusinesses. Businesses employ workers, provide for community needs and services and generaterevenue once again, allowing the community, both its members and government, to provide for itself.Considerable Federal funds are contributed to local, State and Tribal economic recovery aswell as to other areas of recovery that necessarily strengthen the economy. The attraction ofoutside investment and the role of the private sector cannot be understated as foundational in acommunity’s economic recovery. Thus, the role of the Economic RSF is to facilitate and enablethat role by leveraging Federal resources, information and leadership. Informed managementmust accompany this capital investment to ensure its most effective use and compliance withall applicable Federal laws and regulations. This involves the coordination of Federal recoveryprograms and their integration with private sector efforts including those of nongovernmental andprivate volunteer organizations, nonprofits, investment capital firms and the banking industry.The Economic RSF facilitates the progression from direct Federal financial assistance to communityself-sustainment. Importantly, the RSF works closely with local community leadership who directlong-term economic recovery efforts. This requires the sustained engagement of possibly monthsor years by RSF leadership with the leadership of disaster-impacted jurisdictions. A complexundertaking, this RSF engages many entities utilizing government assistance as seed money. Theseactions encourage reinvestment and facilitate private-sector lending and borrowing necessaryfor the functioning of vital markets and economies. Effective economic recovery following adisaster is positively influenced by pre-disaster community planning including mitigation actionsthat increase community resilience. When coupled with informed decisions by local officials, itprovides the confidence building necessary for economic recovery (Tables 5, 6 and 7).RECOVERY SUPPORT FUNCTIONSPage 49

National Disaster Recovery FrameworkOUTCOMES FOR THE ECONOMIC RSFThrough the coordination of local, State, Tribal and Federal government programs andthe private sector, the Economic RSF and local leadership leverages, following a disaster,community development plans and stakeholder relationships to create a new postdisastereconomic condition meeting community needs. The following actions encouragereinvestment and facilitate private sector lending and borrowing necessary for the functioningof vital markets and economies. Sustained pre- and post-disaster mitigation actions create acommunity less at risk, strengthen future economic stability and create possible insurancebenefits. Specific outcomes may include:• Workforce development initiatives are in place; jobs are created and retained.• Entrepreneurial and business development initiatives are in place.• Community-wide economic development plans are developed with broad input andconsider regional economic recovery and resiliency.• Strategies for quickly adapting to changed market conditions, reopening businesses and/orestablishing new businesses are in place.• Business initiatives to employ workers and generate revenue are in place.• Management plans ensure that the most effective use of Federal funds is in place.• Federal funds are withheld when discrimination on the basis of race, color, nationalorigin, religion, sex, age, or disability are present.• Private and public sector actors have information they need to make informed decisionsabout recovery.Table 7.RECOVERY SUPPORT FUNCTIONSPage 51

National Disaster Recovery FrameworkRSF: HEALTH AND SOCIAL SERVICES.Coordinating Agency: HHS.Primary Agencies: CNCS, DHS (FEMA, NPPD & CRCL), DOI, DOJ, DOL, ED, EPA, VASupporting Organizations: DOT, SBA, TREAS, USDA, VA, ARC, NVOAD.Mission.The Health and Social Services RSF mission is for the Federal Government to assist locally-ledrecovery efforts in the restoration of the public health, health care and social services networks topromote the resilience, health and well-being of affected individuals and communities.Function.The core recovery capability for health and social services is the ability to restore and improvehealth and social services networks to promote the resilience, health, independence and well beingof the whole community. The Health and Social Services RSF outlines the Federal framework tosupport locally-led recovery efforts to address public health, health care facilities and coalitions,and essential social services needs. For the purposes of this RSF, the use of the term health willrefer to and include public health, behavioral health and medical services. This Annex establishes(1) a Federal focal point for coordinating Federal recovery efforts specifically for health and socialservices needs; and, (2) a Federal operational framework outlining how Federal agencies plan tosupport local health and social services recovery efforts. This framework is flexible and can adjustduring a disaster to complement local efforts, as needed (Tables 8, 9 and 10).PRE-DISASTER, THE HEALTH AND SOCIAL SERVICES RSF• Incorporates planning for the transition from response to recovery into preparedness andoperational plans, in close collaboration with ESFs #3, #6, #8 and #11.• Incorporates planning for the transition from post-incident recovery operations back to asteady-state into preparedness and operational plans.• Develops strategies to address recovery issues for health, behavioral health and socialservices – particularly the needs of response and recovery workers, children, seniors,people living with disabilities, people with functional needs, people from diverse culturalorigins, people with limited English proficiency and underserved populations.• Promotes the principles of sustainability, resilience and mitigation into preparedness andoperational plans.Table 8.RECOVERY SUPPORT FUNCTIONSPage 52

National Disaster Recovery FrameworkRSF: HOUSING.Coordinating Agency: H U D.Primary Agencies: DHS/FEMA, DOJ, HUD, USDA.Supporting Organizations: CNCS, DOC, DOE, EPA, HHS, SBA, U.S. Access Board, VA,ARC, NVOAD.Mission.Address pre- and post-disaster housing issues and coordinate and facilitate the delivery of Federalresources and activities to assist local, State and Tribal governments in the rehabilitation andreconstruction of destroyed and damaged housing, whenever feasible, and development of othernew accessible, permanent housing options.Function.The core recovery capability for housing is the ability to implement housing solutions thateffectively support the needs of the whole community and contribute to its sustainability andresilience. Like infrastructure and safety services, housing is a critical and often challengingcomponent of disaster recovery. It is critical because local economies cannot recover fromdevastating disasters without adequate housing, especially affordable housing. It is challengingbecause many years’ worth of housing repair, rehabilitation, reconstruction and new constructionoften need to occur at an accelerated pace as a result of a disaster. These conditions create design,construction, labor, materials, logistics, inspection and financing issues.The Housing RSF, through its member departments and agencies, works toward addressingdisaster housing issues pre-disaster, focusing on solutions that are implementable, sustainableand resilient. As States and communities look to the Federal Government for assistance in housingboth disaster survivors and others who choose to live in recovering communities, the HousingRSF coordinates and effectively integrates available housing-related resources, addresses conflictingpolicy and program issues and identifies gaps in service and assistance delivery.Consistent with the National Disaster Housing Strategy (NDHS), the Department of Homeland Security(DHS)/Federal Emergency Management Agency (FEMA) maintains lead responsibility forsheltering and interim housing with interim housing support from Housing and UrbanDevelopment (H U D) as well as other primary agencies and support organizations. Sheltering fallsunder ESF #6 in the National Response Framework (NRF) where DHS/FEMA is the coordinating agency.Interim housing, as its name implies, is a transition to permanent housing and is dependent onthe period of transition as responsibility moves from Emergency Support Function (ESF) #6 tothe Housing RSF. Addressing permanent housing, the third focus area of the NDHS, is under theHousing RSF (Tables 11, 12 and 13).RECOVERY SUPPORT FUNCTIONSPage 55

National Disaster Recovery FrameworkPRE-DISASTER, THE HOUSING RSF• Works with local, State and Tribal governments, organizations and others in coordinationwith the National Disaster Housing Task Force, Joint Housing Solutions Group.• Identifies strategies and options that address a broad range of disaster housing issues suchas those dealing with planning, zoning, design, production, logistics, codes and financing.• Builds accessibility, resilience, sustainability and mitigation measures into identifiedhousing recovery strategies.Table 11.POST-DISASTER, THE HOUSING RSF• When activated by the FDRC, the primary and supporting departments and agenciesdeploy in support of the Housing RSF mission.• Coordinates and leverages Federal housing-related resources to assist local, State and Tribalgovernments to address housing-related, disaster recovery needs.• Encourages rapid and appropriate decisions regarding land use and housing location in thecommunity or region.• Identifies gaps and coordinates a resolution of conflicting policy and program issues.• Maintains robust and accessible communications throughout the recovery processbetween the Federal Government and all other partners to ensure ongoing dialogue andinformation sharing.Table 12.RECOVERY SUPPORT FUNCTIONSPage 56

National Disaster Recovery FrameworkOUTCOMES FOR THE HOUSING RSFDepartments and agencies with expertise in long-term housing solutions work through thisRSF and in conjunction with the National Disaster Housing Task Force so that:• Housing resources that address local, State and Tribal disaster recovery housing needs arecoordinated.• Planning for current and post-disaster requirements are integrated into the organizationsat the local and State level that perform land and community planning and building codeadministration.• Local, State, Tribal and Federal programs, industry and construction options for addressingpost-disaster housing needs are in place.• Research results related to the disaster recovery housing area are shared.• Interagency knowledge and expertise are shared with State-led housing task forces toaddress disaster housing issues.• Pre- and post-disaster interaction and problem solving among Federal agencies and stakeholderswith a focus on reconstructing permanent housing, including affordable and accessible housingthat incorporates resilience, sustainability and mitigation concepts are facilitated.• Timely construction of housing that complies with local, State and national modelbuilding codes, including accessibility standards, is facilitated.• Loss of historic buildings and resources is minimized.Table 13.RECOVERY SUPPORT FUNCTIONSPage 57

National Disaster Recovery FrameworkSee footnoteRSF: INFRASTRUCTURE SYSTEMS.Coordinating Agency: D O D/USACE.Primary Agencies: DHS (FEMA & NPPD), D O D/USACE , D OE, D O T.Supporting Organizations: DHS, DOC, DOD, DOI, ED, EPA, FCC, GSA, HHS, NRC, TREAS,USDA, TVA.Mission.Facilitate the integration of the capabilities of the Federal Government to support local, Stateand Tribal governments and other infrastructure owners and operators in their efforts to achieverecovery goals relating to the public engineering of the Nation’s infrastructure systems.Function.The core recovery capability for infrastructure systems is the ability to efficiently restore theinfrastructure systems and services to support a viable, sustainable community and improvesresilience to and protection from future hazards. The Infrastructure Systems RSF promotes aholistic approach to disaster recovery coordination, support, planning and implementation forinfrastructure systems that serve the community. This includes single and multijurisdictional areasand regions.The Infrastructure Systems RSF Coordinating Agency conducts operations in accordance with itsauthorities and resources to provide vital public engineering services to strengthen our Nation’ssecurity and reduce risks from disasters. When appropriate, the Coordinating Agency, workingtogether with FEMA, facilitates and promotes the efforts of the RSF primary and supportingagencies to ensure those agencies with the requisite authorities, expertise, and resources arepositioned to provide assistance to and collaborate with public and private sector infrastructurepartners to the extent authorized by law. The Infrastructure Systems RSF Coordinating Agency doesnot directly undertake, however, any operational recovery or engineering activities outside thescope of its authorities and resources.The Infrastructure Systems RSF serves as a collaborative forum for Federal Governmentengagement with local, State, Tribal and private sector representatives to focus on publicengineering services that can reduce risks from disasters and expedite recovery. The collaborativeefforts of this RSF involve government and private sector partners with expertise in publicengineering services, as appropriate, across the infrastructure sectors identified through the NationalInfrastructure Protection Plan (N I P P) Partnership Framework 7 . Therefore, the scope of this RSF includes,but is not limited to, the following infrastructure sectors and subsectors: energy, water, dams,communications, transportation systems, Agriculture (food production and delivery), governmentfacilities, utilities, sanitation, engineering, flood control and other systems that directly supportthe physical infrastructure of communities; as well as physical facilities that support essentialservices, such as public safety, emergency services and public recreation (Tables 14, 15 and 16).footnoteRECOVERY SUPPORT FUNCTIONS7.National Infrastructure Protection Plan (NIPP), 2009,identifies a Partnership Framework composed of 18 sectors.Designation of the sectors is derived from HSPD-7.End of footnote.Page 58

National Disaster Recovery FrameworkSee footnotePRE-DISASTER, THE INFRASTRUCTURE SYSTEMS RSF• Develops guidance and standard procedures for rapid activation of RSF capabilities tosupport community recovery.• Identifies relevant statutory and/or regulatory programs, potential capabilities and/orlimiting factors pertaining to recovery support for infrastructure systems.• Provides a forum for interagency coordination, information sharing and exchange ofeffective practices.• Supports planning, preparedness, education, training and outreach efforts to enhancecapabilities for recovery.• Works with partners to identify critical facilities and ensure considerations are made toreduce risk pre- and post-disaster.Table 14.POST-DISASTER, THE INFRASTRUCTURE SYSTEMS RSF• When activated by the FDRC, the primary and supporting departments and agenciesdeploy in support of the Infrastructure Systems RSF mission.• Supports the recovery of infrastructure systems, dependent on the nature and scope of thedisaster, and the specific authorities and programs within the jurisdiction of participatingdepartments and agencies.• Participates in the national-level coordination of damage and community needsassessments as appropriate to ensure infrastructure considerations integrate into the postdisasterpublic and private sector community planning process.• Deploys RSF resources, as required by the specific disaster situation and consistent withthe specific authorities and programs of the participating departments and agencies, to thefield to assist the affected community in developing an Infrastructure Systems Recoveryaction plan that:• Avoids the redundant, counterproductive, or unauthorized use of limited capitalresources necessary for infrastructure/recovery.• Helps resolve conflicts, including those across jurisdictional lines, resulting from thecompetition for key resources essential to infrastructure systems recovery 8 .• Sets a firm schedule and sequenced time structure for future infrastructure recoveryprojects.• Works with RSF partners to leverage available financial and technical assistance, bothfrom governmental and nongovernmental sources, in the execution of the community’sInfrastructure Systems Recovery action plan.Table 15.footnote8.In certain catastrophic situations and other extreme conditions, the Title I authoritiesof the Defense Production Act may be used to prioritize and allocate key resources andservices in the interest of national security and defense and to support critical infrastructurerestoration. For more information, see 50 U.S.C. App. § 2061 et seq. and http://www.fema.gov/about/programs/dpa/pubs.shtm and http://www.bis.doc.gov/dpasRECOVERY SUPPORT FUNCTIONSEnd of footnote.Page 59

National Disaster Recovery FrameworkPOST-DISASTER, THE INFRASTRUCTURE SYSTEMS RSF (Continued)• Promotes rebuilding infrastructure in a manner which will reduce vulnerability to futuredisasters impacts.• Maintains robust and accessible communications throughout the recovery processbetween the Federal Government and all other partners to ensure ongoing dialogue andinformation sharing.Table 15 (Continued).OUTCOMES FOR THE INFRASTRUCTURE SYSTEMS RSF.The Infrastructure Systems RSF provides the coordinating structures, framework and guidanceto ensure:• Resilience, sustainability and mitigation are incorporated as part of the design forinfrastructure systems and as part of the community’s capital planning process.• Infrastructure systems are fully recovered in a timely and efficient manner to minimize theimpact of service disruptions. The private sector critical infrastructure has the incentive andthe means to support a unified community and national recovery effort.• The capacity of all infrastructure systems is adequately matched to the community’scurrent and projected demand on its built and virtual environment.Table 16.RECOVERY SUPPORT FUNCTIONSPage 60

National Disaster Recovery FrameworkRSF: NATURAL AND CULTURAL RESOURCES.Coordinating Agency: D O I.Primary Agency: DHS/FEMA, D O I, E PA.Supporting Organizations: ACHP, CNCS, CEQ, DOC, IMLS, LOC, NEA, NEH, USACE, USDA,Heritage Preservation.Mission.Integrate Federal assets and capabilities to help State and Tribal governments and communities addresslong-term environmental and cultural resource recovery needs after large-scale and catastrophic incidents.Function.The core recovery capability for natural and cultural resources is the ability to protect naturaland cultural resources and historic properties through appropriate response and recovery actionsto preserve, conserve, rehabilitate, and restore them consistent with post-disaster communitypriorities and in compliance with appropriate environmental and cultural resources laws. TheNatural and Cultural Resources RSF coordinates departments and agencies working togetherto provide information and assistance to communities seeking to preserve, protect, conserve,rehabilitate, recover and restore natural and cultural resources during recovery.Relevant agencies and partners are those with expertise and programs including, but not limited to, specificnatural and cultural resource issue identification, assessment and management (e.g., fish and wildlife, historicand traditional cultural properties, hydrology); natural and cultural resource planning; environmentalplanning and historic preservation compliance under Federal laws and Executive Orders (specific to programs thatprovide funding for disaster recovery); and community sustainability (Tables 17, 18 and 19).PRE-DISASTER, THE NATURAL AND CULTURAL RESOURCES RSF• Identifies relevant Federal programs and incentives that have a role in supporting thepreservation, protection, conservation, rehabilitation, recovery and restoration of naturaland cultural resources during recovery.• Develops a pre-disaster Natural and Cultural Resources RSF action plan to identify andcommunicate priority actions.• Identifies and prioritizes gaps and inconsistencies within and between relevant Federalregulations, policies, program requirements and processes affecting natural and culturalresources that are used in disaster recovery, either separately or in combination with oneanother, and makes recommendations to the National Disaster Recovery Planning (NDRP)Division at FEMA Headquarters and specific Federal agencies.• Works with private nonprofits and other nongovernmental organizations (N G Os) toleverage opportunities to encourage local, State and Tribal governments and institutions todevelop emergency management plans that integrate natural and cultural resource issues.• Promotes the principles of sustainable and disaster resistant communities through theprotection of natural resources such as coastal barriers and zones, floodplains, wetlandsand other natural resources critical to risk reduction.• Assesses appropriate hazard mitigation strategies for the protection of cultural resources.Table 17.RECOVERY SUPPORT FUNCTIONSPage 61

CHAPTERNational DisasterRecovery Framework9. PLANNING FOR SUCCESSFULDISASTER RECOVERY.Proper pre- and post-disaster planning isa prerequisite for the implementation of awell-orchestrated recovery process at thelocal, State and Tribal levels. Preparednessinitiatives help guide the recovery processto effectively and efficiently achieve acommunity’s disaster recovery priorities.Both pre- and post-disaster recovery planningare critical for communities to developresilience and for successful and timelyrecovery.PRE-DISASTER RECOVERYPLANNING.Pre-disaster recovery planning enableslocal, State and Tribal governments toeffectively direct recovery activities andexpedite a unified recovery effort. Predisasterplans provide a common platformto guide recovery decisions and activities.When done in conjunction with local andregional comprehensive and communitydevelopment, pre-disaster planning helpsto identify recovery priorities, incorporatehazard mitigation strategies in the wake of adisaster and articulate post-disaster options.By integrating and coordinating planninginitiatives, a community further increaseslocal resilience.In addition to the general elements of thepre-disaster planning process (Table 20),there are also elements specific to the variousparticipants in the process. The responsibilityof preparing for disaster recovery beginswith the individual and builds to the largerresponsibility of the community and localgovernment. Community planning effortsare supported by voluntary, faith-based andcommunity organizations; businesses; andlocal, State, Tribal and Federal governments.Details on pre- and post-disaster planningactivities can be found in Appendix C.PLANNING FOR A SUCCESSFUL DISASTER RECOVERYPage 63

National Disaster Recovery FrameworkKEY PRINCIPLES OF PRE-DISASTER RECOVERY PLANNING.Pre-disaster planning relies on key principles to:• Establish clear leadership, coordination and decisionmaking structures at the local, Stateand Tribal levels.• Develop pre-disaster partnerships to ensure engagement of all potential resources throughthe following methods:• Identify and engage stakeholders including, but not limited to, the general public,community leaders, faith-based organizations, nonprofit organizations and privatesector entities.• Organize connections to interface with local, State, Tribal and Federal governments.• Ensure community participation of historically underserved populations includingdiverse racial and ethnic communities, individuals with disabilities and others withaccess and functional needs, children, seniors, and individuals with limited Englishproficiency.• Test and evaluate pre-disaster plans through seminars, workshops and exercises.• Build partnerships between neighborhoods and local government agencies that form thebasis for pre-and post-multihazard assessments and support for mitigation actions.• Integrate pre-disaster recovery planning (e.g., response, land use and hazard mitigationplanning) with other appropriate community planning (e.g., comprehensive, accessibilitydesign and capital improvement planning).• Identify limitations in community recovery capacity and the means to supplementthis capacity.• Incorporate sustainable development, including environmental, historic preservation andfinancial elements, into recovery planning guidelines.• Develop an accessible public information campaign that addresses the concerns of thepublic and an array of possible scenarios.• Prepare pre-disaster Memoranda of Understanding (M OUs) as a way to establish earlypartnerships, planning initiatives and expectations with stakeholders, community faithbasedorganizations, nonprofit groups and private sector entities.• Develop and implement recovery training and education as a tool for building recoverycapacity and making it available to all other stakeholders.• Identify resource requirements and conduct acquisition planning.Table 20.PLANNING FOR A SUCCESSFUL DISASTER RECOVERYPage 64

National Disaster Recovery FrameworkPRE-DISASTER RECOVERYPLANNING ELEMENTS.Pre-disaster recovery planning involves aState or community articulating a processfor how it organizes and manages itsrecovery, establishes relationships amongstakeholders and develops methods forprioritizing recovery decisions and land useconsiderations. Elements of a pre-disasterrecovery planning and coordination system(Table 21) may include the following:PRE-DISASTER RECOVERY PLANNING RECOMMENDED ACTIVITIES.Assessment.• Identify hazards, assess risks and vulnerabilities.• Identify limitations in recovery capacity, and means to supplement this capacity.• Identify areas of potential financial challenges.Communication and Outreach.• Identify strategies to use in the development of the pre-disaster recovery planning process.• Develop outreach and communications strategies for use during post-disaster recovery.• Ensure community participation of underserved and disadvantaged populations includingthe use of alternative communications formats and multiple languages.• Ensure effective communications for all participants, including individuals with disabilitiesand individuals with limited English proficiency.Stakeholders.• Identify sectors of the community to participate in pre- and post-disaster recoveryplanning and coordination.Partnerships.• Develop pre-disaster partnerships that ensure engagement of all potential resources and issues.• Encourage full engagement of the public and recovery stakeholders.• Organize connections and interface with the local government.Guiding Principles and Recovery Priorities.• Determine principles to guide recovery decisionmaking.• Explore how priorities are determined following a disaster.• Incorporate sustainability into overall planning guidance.Table 21.PLANNING FOR A SUCCESSFUL DISASTER RECOVERYPage 65

National Disaster Recovery FrameworkPRE-DISASTER RECOVERY PLANNING RECOMMENDED ACTIVITIES (Continued).Organizational Framework.• Establish clear leadership, coordination and decisionmaking structures throughout alllevels of government.Concept of Operations.• Establish the operational framework that is followed immediately after a disaster occurs.• Establish maintenance procedures for updating pre- and post-disaster recovery plans.Process for Post-Disaster Recovery Planning.• Clearly articulate the connectivity between mitigation, comprehensive and regionalsustainability planning and other policy positions.• Identify how the community will work together after a disaster to develop their plan for recovery• Use a multihazard approach to recovery planning and preparedness.• Identify priority recovery and redevelopment activities.• Organize decisions through the use of a planning system that:Exercise.• Evaluates the likely conditions and needs after a disaster.• Sets recovery goals and objectives.• Measures progress against those goals and objectives.• Test pre-disaster planning, preparation and staff capabilities by implementing recovery exercises.• Evaluate performance and revise pre-disaster recovery plans accordingly.Planning Considerations.• Identify specific planning considerations that must be taken into account in the development ofa recovery plan, including but not limited to, place-based mitigation issues such as:• Wild/rural/urban interfaces.• Floodplain management.• Coastal zones.• Seismic areas.• Historic and cultural properties, districts, landscapes, and traditional cultural properties.Table 21 (Continued)PLANNING FOR A SUCCESSFUL DISASTER RECOVERYPage 66

National Disaster Recovery FrameworkPOST-DISASTER RECOVERYPLANNING.Communities impacted by a disaster shoulddevelop a process for optimally managingtheir recovery effort and resources. Postdisastercommunity recovery planning (Table22) puts complex decisions in the contextof the disaster and forms the foundation forallocating resources. The planning processprovides the benchmark to measure theaffected community’s progress towards asuccessful outcome.KEY PRINCIPLES OF POST-DISASTER RECOVERY PLANNING.All disaster-impacted communities can benefit by engaging in disaster recovery planning andcreating plans that are meaningful to multiple audiences, including potential funders, Tribalgovernments, State and Federal level agencies and members of the community. The postdisasterplanning process:• Organizes recovery priorities and tasks through the use of a planning process to:• Evaluate the conditions and needs after a disaster.• Assess risk.• Set goals and objectives.• Identify opportunities to build in future resilience through mitigation.• Identify specific projects in areas of critical importance to the community’s overall recovery.• Uses a community-driven and locally managed process, designed to promote localdecisionmaking and ownership of the recovery planning and implementation effort.• Works collaboratively with all groups of people affected by the disaster to promoteinclusive and accessible outreach to their communities and address issues relevant to them.Ensures inclusion and encourages participation of individuals and communities that mayrequire alternative and/or additional outreach support (e.g., racial/ethnic communities,individuals with limited English proficiency, and people with disabilities).• Incorporates considerations that include the concept of “growing smarter” as the recoverycontinuum progresses. This includes compliance with standards for sustainable andaccessible design, alteration and construction.• Integrates multihazard considerations into mitigation and preparedness activities.• Builds partnerships among local agencies, jurisdictions and State, Tribal and Federalgovernments.• Provides well-defined activities and outcomes — including schedules and milestones —aimed at achieving recovery.• Develops tools and metrics for evaluating progress against set goals, objectivesand milestones.• Identifies resource requirements and conducts acquisition planning.Table 22.PLANNING FOR A SUCCESSFUL DISASTER RECOVERYPage 67

See footnoteNational Disaster Recovery FrameworkPlanning for the complex needs of the fullcommunity and bringing all stakeholdersto a common planning table with acommitment to physical, programmatic andcommunications accessibility helps create asuccessful post-disaster recovery process. Asignificant challenge of post-disaster recoveryplanning is developing a plan quickly enoughto meet the needs of residents and businesses.The post-disaster planning process operateson a much faster timeline than traditional orpre-disaster planning processes. However,one of the basic goals of the process is todevelop the relationships and interagencycooperation that continue to serve therecovery process once planning is complete.SUGGESTED POST-DISASTERRECOVERY PLANNING ELEMENTS.A post-disaster plan is a discrete process thatproduces a document or series of documentsfor the disaster at hand that results inintegrated recovery and reconstructionprograms, actions and recovery. This postdisasterrecovery plan is based on the strategyand process laid out in the pre-disaster plan.Post-disaster plans guide funding for a widevariety of public sector and nongovernmentalinvestments.The post-disaster recovery planning processbrings the community together to developan overall framework for coordination andrecovery planning (Table 23). The processassists States and communities in focusingon recovery issues and needs, developingprojects and strategies to address thoseneeds and determining measures of successto better manage recovery. Organizingand managing the recovery process allowsa community to take advantage of theopportunities created by recovery. Eachcommunity determines its process for postdisasterrecovery planning. General elementsthat may be helpful when considering thedevelopment of a post-disaster recovery planinclude the following:POST-DISASTER RECOVERY PLANNING ELEMENTS 9 .Assessment.• Assess the need created by the disaster to determine where recovery issues are presentgeographically by sector (e.g., housing, health care, infrastructure, environment,economy).• Determine areas of future risk and mitigation opportunities, such as reviewing pastFederally-funded mitigation activities for effectiveness and use as baseline for newrecovery planning and assessment needs.Leadership.• Identify an individual or group as well as supporting structures required to lead theprocess in a manner that complies with all relevant laws, including civil rights laws.footnoteTable 23.PLANNING FOR A SUCCESSFUL DISASTER RECOVERY9.These elements modified from the Long-Term CommunityRecovery (LTCR) Planning Process; A Self-Help Guide.http://www.fema.gov/library/viewRecord.do?id=2151End footnote.Page 68

National Disaster Recovery FrameworkPOST-DISASTER RECOVERY PLANNING ELEMENTS (Continued).Support.• Coordinate with all community leaders to ensure participation and validity of the process.• Identify outside resources, financial and technical, that provide support to the overallrecovery effort.Communication and Outreach.• Establish an accessible process for exchanging information between the public and leadership.• Develop a communications map to ensure all sectors of the community are engaged in the process.• Use nontraditional communications outlets to reach as much of the community as possible.• Ensure effective communications for all participants, including individuals with disabilitiesand individuals with limited English proficiency.Existing Guidance Documents.• Use mitigation, comprehensive and other community plans to guide the identification ofpriority redevelopment and reconstruction within recovery.Build Consensus.• Work together to move recovery forward.• Continue to engage the community and reach out to new stakeholders.• Identify and address conflict.Recovery Issues.• Determine the areas of concern and the impact these areas have on recovery.• Identify areas of opportunity in recovery planning.Recovery Vision and Goals.• Identify areas that strengthen and revitalize the community.• Develop and document the recovery vision and goals.• Solicit public participation in the development and confirmation of the vision and goals.Table 23 (Continued)PLANNING FOR A SUCCESSFUL DISASTER RECOVERYPage 69

National Disaster Recovery FrameworkPOST-DISASTER PLANNING ELEMENTS (Continued).Strategy.• Use existing planning documents on hazard mitigation, comprehensive and regionalplanning to develop strategies.• Develop projects and programs to meet the recovery vision and goals created by thecommunity.• Evaluate projects and programs to determine their impact on recovery, feasibility,public support, sustainability initiatives, effective use of resources and other criteria asdetermined by the community.Plan Writing.• Document the vision, goals, projects and programs.• Provide a draft to stakeholders.• Revise based on feedback.Implementation.• Determine the implementation plan and priorities for recovery projects.• Identify key leaders responsible for undertaking next steps or moving recovery strategiesforward.• Remain flexible.Funding.• Use existing public and private resources and new funding streams to creatively packageresources.• Phase large projects to allow for more flexible application of funding.Update.• Revise plans as needed to meet changing recovery needs and priorities.• Continue to update and engage the broader stakeholder population on next steps.• Monitor progress and convey achievements to all stakeholders.Table 23 (Continued)PLANNING FOR A SUCCESSFUL DISASTER RECOVERYPage 70

CHAPTERNational DisasterRecovery Framework10. COMMUNITY CONSIDERATIONS.Communities across the country vary in size,geography and demographics. A successfulrecovery effort takes these various communityconsiderations into account. What followsis guidance on accessibility and recovery,ensuring inclusion of all communitymembers, unmet needs, rural recovery needs,and high density urban area needs.ACCESSIBILITY ANDRECOVERY.The guidance included here is specific toissues related to children and adults withphysical, mental, cognitive, intellectual andsensory disabilities as well as others withaccess and functional needs.Recognize that best practices are not to beconfused with legal obligations to engagein recovery activities that are fully inclusiveof individuals with disabilities and otherindividuals with access and functional needs.Those applying the NDRF should be awareof statutory and executive order obligationsinvolved, which may include:• Robert T. Stafford Disaster Relief and EmergencyAssistance Act (Stafford Act), as amended.• Post-Katrina Emergency Management Reform Act.• Rehabilitation Act of 19 73, as amended.• Americans with Disabilities Act (A D A), asamended 2008.• Fair Housing Act of 19 68, as amended.• Architectural Barriers Act of 19 68.• Communications Act of 19 34, as amended.• Individuals with Disabilities Education Act (I D E A)of 19 75, as amended.• Title V I of the Civil Rights Act of 1964, asamended.• The Age Discrimination Act of 19 75.• Executive Order 13347, Individuals withDisabilities in Emergency Preparedness.These statutory and executive orderobligations include accessibility inarchitecture, transportation, housing andeffective communications, employment,education, policies and programs includingthose receiving Federal funding. Strategiesfor fulfilling these obligations include:• Ensure the integration of people withdisabilities and other individuals withaccess and functional needs into allaspects of emergency management ratherthan as a supplement or special planin, among others, policies, practices,procedures, guidelines, standards,Memoranda of Understanding (M O Us) andagreements or contracts.• Use existing resources to determineaccessibility of facilities and programs.Determine shortfalls based on tools andaddress deficiencies.COMMUNITY CONSIDERATIONSPage 71

National Disaster Recovery Framework• Engage in pre-disaster contracting andplanning to meet the emergency needsof children and adults with disabilities,including the provision of disabilityrelatedassistance and functional needssupport services, consumable medicalsupplies, durable medical equipment,accessible transportation and accessiblehousing.• Involve community, cultural anddisability organizations, such asindependent living organizations,protection and advocacy agencies anddisability agencies in recovery planningefforts and all recovery committeetypes. Integrate disability and accessand functional needs considerationsinto housing, economic and workplacedevelopment, health care, child care,transportation and infrastructurestrategies.• Conduct disaster recovery awarenesstraining for stakeholders, includingdisability navigators; advocacyorganizations, including thoserepresenting the needs of children withdisabilities, individuals from diversecultural origins, child care providersand schools; senior centers and agingagencies; rehabilitation offices; medicalauthorities and relevant organizations.Provide training that is legally compliantby using tools such as the A D A Best PracticesTool Kit.• Consider that recovery partners(including emergency managers, socialworkers, organizations and agencies)may lack the familiarity that is presumednecessary for working with children andadults with disabilities and others withaccess and functional needs and theorganizations that support thesepopulations.• Recognize that there are individuals whohave acquired or exacerbated disabilitiesas a result of the disaster. Theseindividuals may need added assistance tofamiliarize themselves with the processesto access services and support so that theycan be as independent as possible andparticipate in the recovery process.• Consider the continuing impact of ahazard, such as lingering smoke or thelong-term effects of debris, on childrenand adults with existing and newdisabilities.• Ensure that all print, electronic and faceto-facecommunications are accessible topeople with disabilities and other at-riskpopulations with access and functionalneeds. Provide necessary auxiliaryaids and services to achieve effectivecommunications, but not limited to,interpreters, computer-assisted real-timetranscription, large print, captioning,audio descriptions, wayfinding and notetaking.• Ensure that material relevant todisabilities and emergency managementis accessible and available along withother electronic material.• Explore ways to use accessible andmulti-lingual social media tools to collectand disseminate disaster and recoveryinformation.• Liaise with large-scale employers andproviders of vocational and job trainingsupport to address the recovery of theemployment sector.COMMUNITY CONSIDERATIONSPage 72

National Disaster Recovery Framework• Ensure that recovery measures andmetrics take into account the recoveryprogress of persons with disabilitiesand other individuals with access andfunctional needs.ENSURING INCLUSION OF ALLCOMMUNITY MEMBERS.To be successful, recovery measures andmetrics must take into account the needsof all community members. Actions, bothintentional and unintentional, that excludegroups of people based on race, color,national origin, sex, age or disability, canhave long-term negative consequences onentire communities and may violate thelaw. Understanding legal obligations andsharing best practices when planning andimplementing recovery strategies to avoidexcluding groups on these bases is critical.As with the Accessibility and Recoverysection, those who are engaging in recoveryactivities are covered by specific legalobligations that prohibit discrimination onthe basis of race, color or national origin,including limited English proficiency, sexand age. These statutory and legal obligationsinclude:• Title V I of the Civil Rights Act of 1964,which prohibits discrimination or thedenial of benefits on the basis of race,color or national origin, includinglimited English proficiency, under anyprogram or activity receiving Federalfinancial assistance;• Robert T. Stafford Disaster Relief and EmergencyAssistance Act (Stafford Act), which prohibitsdiscrimination on the basis of race, color,religion, nationality, sex, age, disability,English proficiency or economic status;• (1) Executive Order 13166, ImprovingAccess to Services for Persons with Limited EnglishProficiency, which requires Federal agenciesto take reasonable steps to ensuremeaningful access to limited Englishproficient individuals in their Federallyconducted activities. The Executive Orderalso directs Federal agencies to provideTitle VI guidance to recipients of Federalfunds regarding the requirement to takereasonable steps to provide meaningfulaccess to limited English proficientindividuals;• Fair Housing Act, which prohibitsdiscrimination in housing based on race,color, national origin, sex, religion,disability and familial status by local,State and Federal government and privatehousing providers, and which requiresrecipients of Federal housing funds totake affirmative steps to promote fairhousing.• Age Discrimination Act of 1975, whichprohibits discrimination on the basisof age under any program or activityreceiving Federal financial assistance.• Executive Order 12898 (February 11, 1994)Federal Actions to Address Environmental Justice inMinority Populations and Low-Income Populations.Directs that each Federal agency shallmake achieving environmental justicepart of its mission by identifyingand addressing, as appropriate,disproportionately high and adversehuman health or environmental effectsof its programs, policies and activities onminority populations and low-incomepopulations.Intentional race, color, national origin,disability, sex or age discrimination in theCOMMUNITY CONSIDERATIONSPage 73

National Disaster Recovery Frameworkconduct of recovery efforts clearly violatescivil rights laws. Recipients of Federal funds,including local and State governments andprivate housing providers, are also prohibitedfrom implementing neutral policies andpractices that have a discriminatory impactbased on these characteristics. Finally bothFederal agencies and recipients must takereasonable steps to provide meaningful accessto limited English proficient individuals.Promising practices to avoid discriminatoryconsequences in recovery efforts include:• Conducting outreach to communityorganizations serving racially andethnically diverse populations forpurposes of advising them aboutavailable assistance, eligibility standardsfor assistance and including them indisaster preparedness, recovery andreconstruction planning.• Ensuring that the location for meetingsseeking public input is accessible toall impacted community membersand advertisement for such meetingstake into account the various ways inwhich different members access suchinformation.• Making sure that language services —including bilingual staff, interpreters andtranslated materials — are in place sothat limited English proficient personsare able to communicate their needs,apply for assistance and receive importantinformation about the process.• Taking steps to encourage all eligiblepersons in need to come forward toreceive vital disaster benefits; not allbenefits require a person to be legallypresent and some allow children ofCOMMUNITY CONSIDERATIONSundocumented parents to receive aid.Sharing information about the minimumeligibility standards for obtainingbenefits, so that eligible individuals,including eligible immigrants and/ortheir children can access aid withoutdifficulty or fear.• Not applying more stringent eligibilitycriteria for recovery aid based on race,color, national origin, language or otherprohibited bases.• Ensuring affordable rental housingin racially and ethnically diversecommunities and seeking input fromthose communities regardingrebuilding efforts.• Monitoring and addressing possiblehousing discrimination against displacedpersons seeking a place to live after adisaster. Complaint procedures should beclearly articulated and nondiscriminationpolicies should be in place.• Ensuring that temporary homes areadequate and conveniently located toessential services such as schools.• Planning for how residents may accessalternative medical facilities, particularlyvia public transportation, if local facilitiesare damaged or destroyed. Engageimpacted community members in theplanning for rebuilding these facilities.• Ensuring that recovery services areaccessible by public transportation.Plan for community access to recoveryservices in the event public transportationsystems are disrupted.• Monitoring and addressing possiblerecovery-related fraud, particularly fraudtargeted at racially and ethnically diversecommunities.Page 74

National Disaster Recovery Framework• Prohibiting discriminatory terms orconditions or discrimination in housingservices (for example, higher securitydeposits or higher rent for tenants basedon their race, color or national origin).UNMET NEEDS.A successful recovery plan adequately attendsto and addresses unmet needs for individualsand families as they recover from a disaster.This is particularly true for vulnerable andunderserved populations. As part of the postdisasterrecovery needs assessment, recoveryplanners survey and interview communitymembers to obtain first-hand informationon unmet needs. Recovery plannerssubsequently measure those needs againstthe roles, responsibilities and capabilities ofgovernment and other stakeholders. Recoveryplanners collaborate closely with theVoluntary Agency Liaisons (V A Ls) and otherapplicable government offices. They usedisaster research to facilitate considerationand inclusion of unmet needs throughout therecovery planning process. Typical areas ofenduring need after a disaster include:• Long-term mental and behavioral healthconcerns for children and adults inrelation to traumatic events induced orexacerbated by the disaster.• Transportation for and duringrelocation.• Long-term housing including housingthat recognizes the need for accessibilityand affordability.• Comprehensive case management.• Children’s stability within schools andchild care settings.• Investigation of underinsured properties.• Affordability of home repairs orinsurance deductibles.• Legal services.• Middle-class families who are outside thepurview of traditional poverty relief ormay be either ineligible or unaware ofprograms offered through agencies thatassist the poor.• Accessible financial assistance, includinglow interest loans for credit-challengedindividuals.• Access to information andcommunications technologiesincluding internet, voice and broadcasttechnologies.RURAL AREARECOVERY NEEDS.Rural communities have particular needsfollowing a disaster. Factors that may impactrecovery in rural areas include: lack of localresources or management; large stretchesof land that are thinly populated; andinfrastructure dispersed across a vast stretchof land. These factors may make logisticalendeavors challenging. Such communitiesmay need a pre-disaster regional recoveryplan but may lack the resources, leadershipor political autonomy to engage in one.In rural communities, sometimes the humanpopulation incurs the greatest loss throughdevastation to the land itself, rather than anyman-made assets. Whether the disaster loss iscaused through drought, floods, crop blightor livestock illnesses, agricultural concernsdemand a recovery approach that is distinctfrom densely populated urban settlements ormanufacturing centers. Other communitiesCOMMUNITY CONSIDERATIONSPage 75

National Disaster Recovery Frameworkneeding a rural recovery approach are thosedependent upon such industries as forestry,mining, fisheries or oil/mineral exploration.In addition, Tribal governments may be ruralin nature, suffering disproportionately in adisaster due to a similar dependence on land.HIGH-DENSITY URBAN AREARECOVERY NEEDS.Large-scale disasters sometimesfundamentally change the landscape ofurban communities, including the social,business and physical landscapes. New urbanplans need to be created post-disaster andcommunity members need to be involvedin the process. Community leaders andmembers alike assess the new challenges andopportunities that the community faces andcreate a preferred future for the urban areathat may not be the same as simply returningto pre-disaster conditions.Page 76

CHAPTER11. ABBREVIATIONS.National DisasterRecovery FrameworkDEPARTMENTS,ORGANIZATIONS ANDABBREVIATIONS.A D A – Americans with Disabilities Act, asamended 2008.A C H P – Advisory Council onHistoric Preservation.A R C – American Red Cross.C E Q – Council on Environmental Quality.C I K R – Critical Infrastructure andKey Resources.C N C S – Corporation for National andCommunity Service.C O G – Continuity of Governments.C O O P – Continuity of Operations.C R C L – Office for Civil Rights andCivil Liberties.D A – Disaster Assistance.D H S – Department of Homeland Security.D O C – Department of Commerce.D O D – Department of Defense.D O E – Department of Energy.D O I – Department of the Interior.D O J – Department of Justice.D O L – Department of Labor.D O T – Department of Transportation.D P A – Defense Production ActE D – Department of Education.E E O C – Equal EmploymentOpportunity Commission.E P A – Environmental Protection Agency.E S F – Emergency Support Function.FCC – Federal Communications Commission.F C O – Federal Coordinating Officer.F D R C – Federal DisasterRecovery Coordinator.F E M A – Federal EmergencyManagement Agency.G S A – General Services Administration.H U D – Department of Housing andUrban Development.H H S – Department of Health andHuman Services.I D E A – Individuals with Disabilities Education Act.I M L S – Institute of Museum andLibrary Services.J F O – Joint Field Office.L D R M – Local Disaster Recovery Manager.L O C – Library of Congress.L T C R – Long-Term Community RecoveryL T D R O – Long-Term DisasterRecovery Office.M O U – Memorandum of Understanding.N C D – National Council on DisabilityN C H – natural and cultural resources andhistoric properties.N C P – National Continuity PlanN D H S – National Disaster Housing Strategy.N D H T F – National Disaster HousingTask ForceN D R F – National Disaster Recovery Framework.NDRP – National Disaster Recovery PlanningN D R P D – National Disaster RecoveryProgram Database.N E A – National Endowment for the Arts.N E H – National Endowment forthe Humanities.N F I P – National Flood Insurance Program.N G O – Nongovernmental Organization.N I M S – National IncidentManagement System.N I P P – National Infrastructure Protection Plan.N L R B – National Labor Relations BoardN P P D – National ProtectionPrograms Directorate.ABBREVIATIONSPage 77

National Disaster Recovery FrameworkN R C – Nuclear Regulatory Commission.N R F – National Response Framework.N V O A D – National Voluntary OrganizationsActive in Disaster.O F As – other Federal agenciesP K E M R A – Post-Katrina EmergencyManagement ActP O C – point of contactR I S C – Regional InteragencySteering Committee.R S F – Recovery Support Function.S B A – Small Business Administration.S C O – State Coordinating Officer.S D R C – State Disaster Recovery Coordinator.S M E – Subject Matter Expert.S O P – Standard Operating Procedure.T D R C – Tribal Disaster RecoveryCoordinator.T R E A S – Department of the Treasury.T V A – Tennessee Valley Authority.U.S. ACCESS BOARD – United StatesAccess Board.U S A C E – U.S. Army Corps of Engineers.U S D A – U.S. Department of Agriculture.U S G S – United States Geological SurveyV A – Department of Veterans Affairs..V A L – Voluntary Agency Liaison.V A L S – Voluntary Agency Liaison Specialist.ABBREVIATIONSPage 78

CHAPTER12. DEFINITIONS.National DisasterRecovery FrameworkAccess and Functional Needs – Personswho may have additional needs before,during and after an incident in functionalareas, including but not limited to:maintaining independence, communication,transportation, supervision, and medical care.Individuals in need of additional responseassistance may include those who havedisabilities; live in institutionalized settings;are seniors; are children; are from diversecultures; have limited English proficiencyor are non-English speaking; or aretransportation disadvantaged.Access/Accessible – The suitability oradaptability of programs, services, activities,goods, facilities, privileges, advantages oraccommodations provided by a public orprivate (for-profit or not-for-profit) entity,or by any entity to which it contracts forall members of the population, includingindividuals with disabilities.Capacity – A combination of all the strengthsand resources available within a community,society or organization that can reduce thelevel of risk, or the effects of a disaster.(From the U N International Strategy for DisasterReduction.)Capacity Building – Efforts aimed to develophuman skills or societal infrastructure withina community or organization needed toreduce the level of risk, or the effects of adisaster. (From the U.N. International Strategy forDisaster Reduction.)Catastrophic Incident – Any natural orman-made incident, including terrorismthat results in extraordinary levels of masscasualties, damage, or disruption severelyaffecting the population, infrastructure,environment, economy, national morale,and/or government functions. A catastrophicevent could result in sustained nationalimpacts over a prolonged period of time;almost immediately exceeds resourcesnormally available to local, State, Tribal,and private sector authorities in theimpacted area; and significantly interruptsgovernmental operations and emergencyservices to such an extent that nationalsecurity could be threatened.Community – A network of individualsand families, businesses, governmental andnongovernmental organizations and othercivic organizations that reside or operatewithin a shared geographical boundary andmay be represented by a common politicalleadership at a regional, county, municipal orneighborhood level.Consumable Medical Supplies – Generallynonprescribed, nondurable, disposable,single-use medical supplies that are mostbeneficial to persons with a disability, illness,injury or functional need to maintain theirlevel of independence.Critical Infrastructure – Systems and assets,whether physical or virtual, so vital that theDEFINITIONSPage 79

National Disaster Recovery Frameworkincapacity or destruction of such may have adebilitating impact on the security, economy,public health or safety, environment, or anycombination of these matters, across anylocal, State, Tribal and Federal jurisdiction.Cultural Resources – Aspects of a culturalsystem that are valued by or significantlyrepresentative of a culture or that containsignificant information about a culture.Cultural resources may be tangible entitiesor cultural practices. Tangible culturalresources are categorized as districts, sites,buildings, structures, and objects for theNational Register of Historic Places and asarcheological resources, cultural landscapes,structures, museum objects and archives,and ethnographic resources for Federalmanagement purposes. Also includes culturalitems as that term is defined in section 2(3) ofthe Native American Graves Protection and RepatriationAct [25 USC 3001(3)]; and archeologicalresources, as that term is defined in section3(1) of the Archaeological Resources Protection Act of1979 [16 USC 470bb(1)].Debris - The remains of something brokendown or destroyed.Durable Medical Equipment – Multiusemedical equipment for the benefit of aperson who has an illness, injury, disabilityor functional need to maintain their levelof independence.Functional Needs – The needs of anindividual who under usual circumstancesis able to function on their own or withsupport systems. However, during anemergency, their level of independenceis challenged.Historic Properties – Any prehistoric orhistoric district, site, building, structure, orobject included in, or eligible for inclusionin the National Register of Historic Places,including artifacts, records and materialremains which are related to such district,site, building, structure, or object. [(16 USCSection 70(w)(5)].Individual with Disability – The termrefers to a person (child or adult) whohas a physical or mental impairment thatsubstantially limits one or more major lifeactivities; a person who has a history orrecord of such impairment; or a personwho is perceived by others as having suchimpairment. The term “disability” has thesame meaning as that used in the Americanswith Disabilities Act (ADA) Amendments Act of 2008,P.L. 110 – 325, as incorporated into theADA. See http://www.ada.gov/pubs/ada.htm for the definition and specific changesto the text of the ADA. State laws and localordinances may also include individualsoutside the Federal definition. Childrenand adults may have physical, sensory,mental health, cognitive and/or intellectualdisabilities resulting in access and functionalneeds and may require assistance to maintainindependence.Individual with Limited EnglishProficiency – The term refers to anindividual who does not speak English ashis/her primary language and who hasa limited ability to read, write, speak orunderstand English.Intermediate Recovery – Phase of recoverywhich involves returning individuals,families, critical infrastructure and essentialgovernment or commercial services toa functional, if not pre-disaster, state.Such activities are often characterized byDEFINITIONSPage 80

National Disaster Recovery Frameworktemporary actions that provide a bridge topermanent measures.Long-Term Recovery – Phase of recoverythat may continue for months or years andaddresses complete redevelopment andrevitalization of the impacted area, rebuildingor relocating damaged or destroyed social,economic, natural and built environmentsand a move to self-sufficiency, sustainabilityand resilience.Major Disaster – As defined by the StaffordAct, any natural catastrophe (includingany hurricane, tornado, storm, high water,wind-driven water, tidal wave, tsunami,earthquake, volcanic eruption, landslide,mudslide, snowstorm, or drought) or,regardless of cause, any fire, flood orexplosion, in any part of the United States,which in the determination of the Presidentcauses damage of sufficient severity andmagnitude to warrant major disasterassistance under this act to supplement theefforts and available resources of local, Stategovernments and disaster relief organizationsin alleviating the damage, loss, hardship orsuffering caused thereby.Mitigation – Capabilities necessaryto reduce loss of life and property bylessening the impact of disasters. Mitigationcapabilities include, but are not limited to,community-wide risk reduction projects;efforts to improve the resilience of criticalinfrastructure and key resource lifelines;risk reduction for specific vulnerabilitiesfrom natural hazards or acts of terrorism;and initiatives to reduce future risks after adisaster has occurred.Natural Resources – Land, fish, wildlife,biota and water. Water means salt and freshwater, surface and ground water used fordrinking, irrigation, aquacultureand recreational purposes, as well as in itscapacity as fish and wildlife habitat.N G O – A nongovernmental entity that servesthe interests of its members, individuals, orinstitutions and is not for private benefit.Recovery – Those capabilities necessary toassist communities affected by an incidentto recover effectively, including, but notlimited to, rebuilding infrastructure systems;providing adequate interim and long-termhousing for survivors; restoring health,social, and community services; promotingeconomic development; and restoring naturaland cultural resources.Redevelopment – Rebuilding degraded,damaged or destroyed social, economic andphysical infrastructure in a community,State or Tribal government to create thefoundation for long-term development.Resilience – Ability to adapt to changingconditions and withstand and rapidly recoverfrom disruption due to emergencies.Response – Those capabilities necessaryto save lives, protect property and theenvironment, and meet basic human needsafter an incident has occurred.Restoration – Returning a physical structure,essential government or commercial servicesor a societal condition back to a formeror normal state of use through repairs,rebuilding or reestablishment.Short-Term Recovery – Phase of recoverywhich addresses the health and safety needsbeyond rescue, the assessment of the scope ofdamages and needs, the restoration of basicinfrastructure and the mobilization of recoveryDEFINITIONSPage 81

National Disaster Recovery Frameworkorganizations and resources includingrestarting and/or restoring essential servicesfor recovery decisionmaking.Smart Planning – An urban planning andtransportation theory that incorporates theconcepts of smart growth and advocatesfor concentrating growth in the center ofa city to avoid urban sprawl and promotescompact, transit-oriented, walkable, bicyclefriendlyland use, including neighborhoodschools, complete streets, and mixed-usedevelopment with a range of housingchoices. It values long-range, regionalconsiderations of sustainability over a shorttermfocus.Stabilization – The process by whichthe immediate impacts of an incident oncommunity systems are managed andcontained.Steady-State – A state where operationsand procedures are normal and ongoing.Communities are considered to be at asteady-state prior to disasters and afterrecovery is complete.Sustainability – Meeting the needs of thepresent without compromising the ability offuture generations to meet their own needs.Underserved Populations/Communities– Groups that have limited or no accessto resources or that are otherwisedisenfranchised. These groups mayinclude people who are socioeconomicallydisadvantaged; people with limited Englishproficiency; geographically isolated oreducationally disenfranchised people;people of color as well as those of ethnicand national origin minorities; women andchildren; individuals with disabilities andothers with access and functional needs;and seniors.Page 82

National Disaster Recovery FrameworkGUIDE TO FIGURES AND TABLESFIGURESFigure 1. RECOVERY CONTINUUM – DESCRIPTION OF ACTIVITIES BY PHASE 8Figure 2. COMMUNITY-FOCUSED RECOVERY 20Figure 3. RECOVERY FUNCTIONS (FDRC, SDRC AND RSFs) WITHIN THEJOINT FIELD OFFICE CHAIN OF COMMAND 32Figure 4. SCENARIOS OF DIFFERENT LEVELS OF RSF ASSISTANCE 40Figure 5. COORDINATING STRUCTURE FOR LARGE AND CATASTROPHIC SCALE DISASTERS 41TABLESTable 1a. PRE- AND POST-DISASTER RESPONSIBILITIES, LOCAL DISASTER RECOVERY MANAGER 26Table 1b. PRE- AND POST-DISASTER RESPONSIBILITIES, TRIBAL DISASTER RECOVERY COORDINATORS 27Table 1c. PRE- AND POST-DISASTER RESPONSIBILITIES, STATE DISASTER RECOVERY COORDINATORS 28Table 2. PRE-DISASTER, THE COMMUNITY PLANNING AND CAPACITY BUILDING RSF 45Table 3. POST-DISASTER, THE COMMUNITY PLANNING AND CAPACITY BUILDING RSF 46Table 4. OUTCOMES FOR THE COMMUNITY PLANNING AND CAPACITY BUILDING RSF 47Table 5. PRE-DISASTER, THE ECONOMIC RSF 49Table 6. POST-DISASTER, THE ECONOMIC RSF 49Table 7. OUTCOMES FOR THE ECONOMIC RSF 50Table 8. PRE-DISASTER, THE HEALTH AND SOCIAL SERVICES RSF 51Table 9. POST-DISASTER, THE HEALTH AND SOCIAL SERVICES RSF 52Table 10. OUTCOMES FOR THE HEALTH AND SOCIAL SERVICES RSF 53Table 11. PRE-DISASTER, THE HOUSING RSF 55Table 12. POST-DISASTER, THE HOUSING RSF 55Table 13. OUTCOMES FOR THE HOUSING RSF 56Table 14. PRE-DISASTER, THE INFRASTRUCTURE SYSTEMS RSF 58Table 15. POST-DISASTER, THE INFRASTRUCTURE SYSTEMS RSF 58Table 16. OUTCOMES FOR THE INFRASTRUCTURE SYSTEMS RSF 59Table 17. PRE-DISASTER, THE NATURAL AND CULTURAL RESOURCES RSF 60Table 18. POST-DISASTER, THE NATURAL AND CULTURAL RESOURCES RSF 61Table 19. OUTCOMES FOR THE NATURAL AND CULTURAL RESOURCES RSF 61Table 20. KEY PRINCIPLES OF PRE-DISASTER PLANNING 64Table 21. PRE-DISASTER PLANNING POTENTIAL AND RECOMMENDED ACTIVITIES 65-66Table 22. KEY PRINCIPLES OF POST-DISASTER PLANNING 67Table 23. POST-DISASTER PLANNING ELEMENTS 68-70Table 24. INDIVIDUALS AND FAMILIES PRE-DISASTER CHECKLIST 89Table 25. INDIVIDUALS AND FAMILIES POST-DISASTER CHECKLIST 89Table 26. PRIVATE SECTOR PRE-DISASTER CHECKLIST 90Table 27. PRIVATE SECTOR POST-DISASTER CHECKLIST 90Table 28. NONPROFIT SECTOR PRE-DISASTER CHECKLIST 91Table 29. NONPROFIT SECTOR POST-DISASTER CHECKLIST 91Table 30. LOCAL GOVERNMENT PRE-DISASTER CHECKLIST 92Table 31. LOCAL GOVERNMENT POST-DISASTER CHECKLIST 92Table 32. STATE GOVERNMENT PRE-DISASTER CHECKLIST 93Table 33. STATE GOVERNMENT POST-DISASTER CHECKLIST 94Table 34. TRIBAL GOVERNMENT PRE-DISASTER CHECKLIST 95Table 35. TRIBAL GOVERNMENT POST-DISASTER CHECKLIST 96These two pages list figures andPage 83

tables by number and page.National Disaster Recovery FrameworkTable 36. FEDERAL GOVERNMENT PRE-DISASTER CHECKLIST 97Table 37. FEDERAL GOVERNMENT POST-DISASTER CHECKLIST 98Table 38. INDIVIDUALS AND FAMILIES PRE-DISASTER PLANNING ACTIVITIES 99Table 39. INDIVIDUALS AND FAMILIES POST-DISASTER PLANNING ACTIVITIES 99Table 40. PRIVATE SECTOR/BUSINESSES PRE-DISASTER PLANNING ACTIVITIES 100Table 41. PRIVATE SECTOR/BUSINESSES POST-DISASTER PLANNING ACTIVITIES 100Table 42. NONPROFIT SECTOR PRE-DISASTER PLANNING ACTIVITIES 101Table 43. NONPROFIT SECTOR POST-DISASTER PLANNING ACTIVITIES 101Table 44. LOCAL GOVERNMENT PRE-DISASTER PLANNING ACTIVITIES 102Table 45. LOCAL GOVERNMENT POST-DISASTER PLANNING ACTIVITIES 103Table 46. STATE GOVERNMENT PRE-DISASTER PLANNING ACTIVITIES 104-105Table 47. STATE GOVERNMENT POST-DISASTER PLANNING ACTIVITIES 106Table 48. TRIBAL GOVERNMENT PRE-DISASTER PLANNING ACTIVITIES 107Table 49. TRIBAL GOVERNMENT POST-DISASTER PLANNING ACTIVITIES 108Table 50. FEDERAL GOVERNMENT PRE-DISASTER PLANNING ACTIVITIES 109Table 51. FEDERAL GOVERNMENT POST-DISASTER PLANNING ACTIVITIES 110Page 84

National DisasterRecovery FrameworkCHAPTER13. APPENDICES.APPENDIX AADDITIONAL RESOURCESAPPENDIX BRECOMMENDED ROLES AND ACTIVITIESIndividuals and Families Recommended Roles and ActivitiesPrivate Sector Recommended Roles and ActivitiesNonprofit Sector Recommended Roles and ActivitiesLocal Government Recommended Roles and ActivitiesState Government Recommended Roles and ActivitiesTribal Government Recommended Roles and ActivitiesFederal Government Recommended Roles and ActivitiesAPPENDIX CPLANNING FOR A SUCCESSFUL DISASTER RECOVERYIndividuals and Families Planning ActivitiesPrivate Sector/Businesses Planning ActivitiesNonprofit Sector Planning ActivitiesLocal Government Planning ActivitiesState Government Planning ActivitiesTribal Government Planning ActivitiesFederal Government Planning ActivitiesAPPENDICESPage 85

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National Disaster Recovery FrameworkAPPENDIX A:ADDITIONAL RESOURCES.• Chapter 7 of the Americans with Disabilities Act (A D A) Best Practices Tool Kit, Emergency Management at:http://www.ada.gov/pcatoolkit/toolkitmain.htm.• Comprehensive Planning Guide 101 at: http://www.fema.gov/about/divisions/cpg.shtm.• Critical Infrastructure and Key Resources (C I K R) at: http://www.dhs.gov/files/programs/gc_1189168948944.shtm.• Disaster Assistance (DA) at: http://www.disasterassistance.gov• Economic Recovery Resources at: http://restoreyoureconomy.org.• Executive Order 1 3 1 7 5 – Consultation and Coordination with Indian Tribal Governments at: http://ceq.hss.doe.gov/nepa/regs/eos/eo13175.html• Title VI, Rehabilitation Act of 1973 at: http://www.access-board.gov/enforcement/rehab-acttext/intro.htm• Age Discrimination Act of 1975 at: http://www.dol.gov/oasam/regs/statutes/age_act.htm• Fair Labor Standards Act at: http://www.dol.gov/whd/flsa/index.htm.• Hurricane Ike Impact Report: Special Needs Populations Impact Assessment Source Document, White Paper at:http://www.disabilitypreparedness.gov/pdf/ike_snp.pdf.• SME: Interagency Council on Emergency Preparedness and Individuals with Disabilities(I C C) at: http://www.dhs.gov/files/committees/editorial_0591.shtm.• National Commission on Children and Disasters: Interim Report at: http://cybercemetery.unt.edu/archive/nccd/20110426214402/http://www.acf.hhs.gov/ohsepr/nccdreport/nccdreport.pdf• National Council on Disability (NCD) August 2009 Report: Effective Emergency Management: Making Improvementsfor Communities and People with Disabilities at: http://www.ncd.gov/publications/2009/Aug122009.• National Disaster Housing Strategy (NDHS) at: http://www.fema.gov/pdf/emergency/disasterhousing/NDHS-core.pdf.• National Disaster Housing Task Force (NDHTF) at: http://www.fema.gov/emergency/disasterhousing/national_task_force.APPENDICESPage 87

National Disaster Recovery Framework• National Disaster Recovery Program Database at: https://asd.fema.gov/inter/ndhpd/public/home.htm.• National Flood Insurance Program (NFIP) at: http://www.fema.gov/business/nfip/.• National Incident Management System (NI MS) at: http://www.fema.gov/emergency/nims/.• National Infrastructure Protection Plan (N I P P) at: http://www.dhs.gov/nipp.• National Labor Relations Board (NLRB) at: http://www.nlrb.gov/.• National Response Framework (NRF) at: http://www.fema.gov/pdf/emergency/nrf/nrf-core.pdf.• National Voluntary Organizations Active in Disaster (NVOAD), “Disaster Spiritual Care Points of Consensus” at:http://www.nvoad.org/resource-library/documents/doc_download/12-disasterspiritual-care.• Occupational Safety and Health Administration (O S H A) at: http://www.osha.gov/.• Department of Transportation’s (DOT) National Transportation Recovery Strategy at: http://www.dot.gov/disaster_recovery/.• Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) (Public Law 93-288) as amendedat: http://www.fema.gov/about/stafact.shtm.APPENDICESPage 88

National Disaster Recovery FrameworkAPPENDIX B:RECOMMENDED ROLES AND ACTIVITIES.INDIVIDUALS AND FAMILIES RECOMMENDED ROLES AND ACTIVITIES.INDIVIDUALS AND FAMILIES PRE-DISASTER CHECKLIST.• Mitigate home vulnerabilities by adding hurricane shutters, bracing cripple walls,anchoring bookshelves, maintaining a defensible firebreak around the house and pruningoverhanging tree limbs among other strategies.• Develop an individual/family disaster preparedness and recovery plan, seeking assistancefrom service providers as necessary. See www.ready.g o v.• Participate in ongoing community-wide planning initiatives, including those specificallyfocused on pre-disaster disaster preparedness, recovery and mitigation.• Provide community input on potential community disaster risks, potential impacts, andrecovery planning through the use of voting, comment, organized efforts and othermeans. Community input should consider building codes, flood plain management,proposed developments and environmental and natural resources rule making initiatives.• Purchase and maintain an appropriate and adequate level of hazard and flood insurance.• Assist others in obtaining planning guidance and tools.• Maintain supplies of food, water and battery-powered communications devices.Table 24.INDIVIDUALS AND FAMILIES POST-DISASTER CHECKLIST.• Implement individual and family recovery plans.• Reach out to others who may need assistance.• Participate in post-disaster community recovery planning if possible.• Establish metrics to evaluate recovery progress and achievement of disaster recoveryobjectives for individuals and families.• Rebuild safer and stronger.Table 25.APPENDICESPage 89

National Disaster Recovery FrameworkPRIVATE SECTOR RECOMMENDED ROLES AND ACTIVITIES.PRIVATE SECTOR PRE-DISASTER CHECKLIST.• Build relationships with community emergency managers and other recovery officials tohave an active voice in the recovery process.• Develop, test and implement business continuity and restoration plans. Take intoaccount worker safety and health and potential employee unavailability or attrition dueto a disaster.• Educate and train employees to implement mitigation measures and preparednessactivities consistent with business continuity plans.• Use internal communications channels to inform employees about preparedness effortsfor work that address individual and family needs.• Carry adequate insurance to rebuild damaged facilities and to survive a disruption of work.• Incorporate mitigation measures in design and construction.• Mitigate risks from disasters by relocating from hazardous areas, hardening facilities andelevating critical infrastructure.• Identify products, services and technical assistance that would be needed for recovery.Align these needs with business sector resources that can be available in a postdisasterenvironment.• Participate and assume a leadership role in local recovery planning; articulate anticipatedneeds in a disaster and assist in identifying resources available to support recovery.Table 26.PRIVATE SECTOR POST-DISASTER CHECKLIST.• Implement business continuity plans.• Communicate status of operations and supply chains as well as restoration challenges andtimelines to local, State, Tribal or Federal recovery managers.• When possible, support employees impacted by the disaster by providing criticalinformation on the recovery process through accessible and multilingual internalcommunications efforts.• Provide volunteers, leaders, technical assistance, commodities and facilities as willing and able.• Form business recovery groups or task forces to assist one another and to communicatemore effectively with government and community leaders.• Research available funding sources and types of funding; understand the applicationprocesses of assistance programs.• Assist small and local businesses in acquiring assistance.• Rebuild safer and stronger.• Establish metrics to evaluate recovery progress and the achievement of private sectordisaster recovery objectives.Table 27.APPENDICESPage 90

National Disaster Recovery FrameworkNONPROFIT SECTOR RECOMMENDED ROLES AND ACTIVITIES.NONPROFIT SECTOR PRE-DISASTER CHECKLIST.• Build relationships with community emergency managers and other recovery officials tohave an active voice in the recovery process.• Co-host stakeholder workshops in various accessible locations in the community todetermine priority recovery issues that are informed by affected neighborhoods.• Incorporate mitigation in the design and construction of places of employment andpromote mitigation to employees.• Implement lessons learned from disaster efforts into the planning process for the StateVoluntary Organizations Active in Disaster (VOAD).• Actively participate in local pre-disaster recovery planning, articulating resources andcapabilities and establishing partnership and support linkages with local VOADs.• Provide training related to post-disaster activities implemented by the organization.• Educate clients on the importance of mitigation strategies.• Establish systems and processes for nonprofit organizations, government agencies andindividuals in remote areas to request post-disaster assistance.Table 28.NONPROFIT SECTOR POST-DISASTER CHECKLIST.• Deliver recovery resources and support services to vulnerable and underserved groups,individuals and communities as necessary.• Provide emotional and psychological care; include training for caregivers.• Supply housing repair, reconstruction and rehabilitation services that comply withapplicable building codes and standards, zoning regulations and design standards.• Communicate and coordinate needs and capabilities to local, State and Tribal authoritieswith the Voluntary Agency Liaison Specialists (V A L S).• Participate in the post-disaster community planning process.• Promote partnerships among all nongovernmental organizations (N G Os) conductingdisaster recovery work.• Serve as subject matter experts (S M Es) on subjects based on agency experience – forexample, offer techniques for the handling of unsolicited donated goods or unaffiliatedvolunteers.• Coordinate recovery programs and services with other entities involved in recoveryincluding government emergency management officials to ensure a unified recoveryprocess that maximizes effectiveness of the overall effort.• Establish metrics to evaluate recovery progress and the achievement of nonprofit disasterrecovery objectives.Table 29.APPENDICESPage 91

National Disaster Recovery FrameworkLOCAL GOVERNMENT RECOMMENDED ROLES AND ACTIVITIES.LOCAL GOVERNMENT PRE-DISASTER CHECKLIST.• Lead local preparedness, pre-disaster recovery and mitigation planning.• Engage community mapping initiatives that visually depict or otherwise identify knownvulnerable geographic areas and infrastructure systems, at-risk subpopulation groups,economically disadvantaged neighborhoods/communities, resource available areas, andprojected post-disaster impacts.• Encourage individuals and families to prepare for their recovery.• Use internal communications channels to inform employees about preparedness effortsfor work and that address individual and family needs.• Pre-identify a structure for managing recovery, including identifying duties of a LocalDisaster Recovery Manager (LDRM) for managing recovery.• Establish agreements and mechanisms to address surge capacity needs.• Ensure plans, agreements and operational initiatives address the provision of disabilityrelatedassistance and functional needs support services.• Institute mechanisms for immediate post-disaster damage assessments (i.e., train communityresidents and business owners, recruit PDA volunteers, expand on Citizen Corps efforts) anddevelop a routine process for informing State officials about disaster impacts.• Ensure compliance with local, State and Federal civil rights obligations.• Develop building and accessibility codes and land use standards as well as enforcementmechanisms which can reduce vulnerability to future disasters.Table 30.LOCAL GOVERNMENT POST-DISASTER CHECKLIST.• Organize, develop, implement and modify recovery, mitigation and land use plans as needed.• Appoint Local Disaster Recovery Manager (LDRM) and define activities and duties.• Ensure integrated efforts across government offices, the private sector andnongovernmental organizations (N GOs) during the formulation and implementationphase of recovery projects and activities, including raising and leveraging recovery funds.• Lead efforts to restore and revitalize all sectors of the community, including local criticalinfrastructure and essential services, business retention and the redevelopment of housingunits damaged, disrupted or destroyed by the disaster.• Manage rebuilding so that risk reduction opportunities are optimized and comply withstandards for accessible design.• Communicate and coordinate with other levels of government involved in recovery.• Undertake an appropriate community planning process – see Chapter 10 “CommunityConsiderations.”• Establish metrics to evaluate and communicate progress and the achievement of localdisaster recovery objectives to all populations.Table 31.APPENDICESPage 92

National Disaster Recovery FrameworkSTATE GOVERNMENT RECOMMENDED ROLES AND ACTIVITIESSTATE GOVERNMENT PRE-DISASTER CHECKLIST.• Implement the State recovery and mitigation plans to include Continuity of Government(C O G) and Continuity of Operations (C O O P).• Create and manage requirements and incentives for pre-incident disaster recoverypreparedness and planning as well as hazard mitigation actions.• Ensure that updated and FEMA approved mitigation plans are maintained at the State level.• Identify recovery activities that are either primarily the responsibilities of Stategovernment or beyond the capabilities and/or authorities of local governments.• Identify responsibilities for the position of a State Disaster Recovery Coordinator (SDRC)or equivalent, and resources for State recovery support functions.• Provide technical assistance and training to local governments and nongovernmentalorganizations (N G Os) on State plans, programs and other resources for disaster recovery.• Ensure that adequate staffing and expertise are available.• Establish agreements and mechanisms to address surge capacity needs.• Implement applicable laws and regulations to protect the rights of community membersto ensure physical, programmatic and communications access to preparedness activitiesand services so that preparedness information for underserved populations is availableand accessible.• Develop and aid enforcement of building and accessibility codes and land use standards,which can reduce vulnerability to future disasters.• Support local area efforts to conduct immediate damage assessments and shareinformation regarding damages.• Form a State-led Disaster Housing Task Force to develop a disaster housing strategy thatoutlines potential approaches in response to specific disasters.• Develop State Recovery Support Function (RSF)-equivalent recovery framework thataddresses housing, economic, environmental, infrastructure, and health and socialservices needs – at a minimum.Table 32.APPENDICESPage 93

National Disaster Recovery FrameworkSTATE GOVERNMENT RECOMMENDED ROLES AND ACTIVITIES.STATE GOVERNMENT POST-DISASTER CHECKLIST.• Implement the State recovery and mitigation plan.• Activate the State Disaster Recovery Coordinator (SDRC).• Assess local government recovery needs and capacities for the specific incident and assistlocal governments and communities with identifying recovery resources.• Coordinate with local, Tribal and Federal governments and agencies, private businessesand nonprofit organizations to lead and coordinate State recovery planning and assistanceto impacted communities.• Lead unified recovery efforts of State agencies, setting appropriate State policies to guideState agency activities as well as inform the application of Federal funding.• Receive, record and manage Federal grant resources; ensure efficient, nondiscriminatoryand effective use of the funds; enforce accountability and legal compliance.• Oversee volunteer and donation management and coordinate with Voluntary AgencyLiaison Specialists (V A L S).• Facilitate and oversee an accessible and inclusive case management process.• Develop and implement strategies for raising and leveraging recovery funds throughprivate investments, charitable donations and State sources such as emergency funds,taxes, fees and bonds that are within the State’s authority to seek.• Provide timely and accessible public information and manage expectations, incoordination with local, Tribal and Federal stakeholders.• Enact new or existing exemptions to State laws and/or regulations to requirements thatfacilitate rebuilding activities and promote safer, stronger and smarter building.• Coordinate with Federal law enforcement to prosecute disaster-related fraud, waste,discrimination and abuse and recover lost funds.• Establish metrics in coordination with the impacted communities to evaluate recoveryprogress and the achievement of statewide disaster recovery objectives.• Ensure safety and health of State workers.Table 33.APPENDICESPage 94

National Disaster Recovery FrameworkTRIBAL GOVERNMENT RECOMMENDED ROLES AND ACTIVITIES.TRIBAL GOVERNMENT PRE-DISASTER CHECKLIST.• Enhance cooperation and partnerships with local and State governments.• Lead Tribal pre-disaster recovery and mitigation planning efforts to include Continuity ofGovernment (C O G) and Continuity of Operations (C O O P).• Preserve and protect cultural resources, sacred sites and traditional lands.• Integrate the needs of individuals having functional needs into all planning efforts.• Develop a Tribal disaster hazard mitigation plan.• Facilitate communication between the Tribal government and U.S. Government byinforming the latter of cultural differences, Tribal distinctions and best means forcommunicating within the Tribal hierarchy and reaching underserved populations.• Prepare a pre-disaster plan that outlines responsibilities, allows for the creation of aTribal Disaster Recovery Coordinator (TDRC) position or equivalent and includes anorganizational structure to manage recovery assistance application and allocation.• Encourage individuals and families to prepare for their recovery.• Establish agreements and mechanisms to address surge capacity needs.• Institute mechanisms for immediate post-disaster damage assessments (i.e., traincommunity residents and business owners, recruit PDA volunteers, expand on Citizen Corpsefforts) and develop a routine process for informing Federal officials about disaster impacts.• Develop and aid enforcement of building and accessibility codes and land use standards,which can reduce vulnerability to future disasters.• Form a Tribal-led Disaster Housing Task Force to develop a disaster housing strategy thatoutlines potential approaches in response to specific disasters.Table 34.APPENDICESPage 95

National Disaster Recovery FrameworkTRIBAL GOVERNMENT RECOMMENDED ROLES AND ACTIVITIES.TRIBAL GOVERNMENT POST-DISASTER CHECKLIST.• Define the Tribal community’s recovery goals.• Partner with local, State, Tribal and Federal agencies to assess needs, resources andrecovery capabilities.• Appoint a Tribal Disaster Recovery Coordinator (TDRC) or equivalent, and establish anorganizational structure to manage recovery assistance application and allocation.• Provide timely and accessible public information to Tribal community members andmanage expectations, in coordination with local, Tribal and Federal stakeholders.• Participate in long-term recovery planning committees with local, State, Tribal andFederal partners.• Coordinate with local, State, Tribal and Federal governments to expedite assistance.• Update and implement pre-disaster recovery and mitigation plans.• Implement a system to apply, receive and manage recovery grant resources unique toTribal governments.• Establish metrics to evaluate recovery progress and the achievement of Tribal disasterrecovery objectives.• Ensure integrated efforts across government offices, the private sector andnongovernmental organizations (N G Os) during the formulation and implementationphase of recovery projects and activities, including raising and leveraging recovery funds.• Lead efforts to restore and revitalize all sectors of the community, including criticalinfrastructure and essential services, business retention and the redevelopment of housingunits damaged, disrupted or destroyed by the disaster.• Manage rebuilding so that risk reduction opportunities are optimized and comply withstandards for accessible design.• Facilitate and oversee an accessible and inclusive case management process.• Enact new or existing exemptions to laws and/or regulations to facilitate rebuildingactivities and promote safer, stronger and smarter building.• Ensure safety and health of Tribal government workers.Table 35.APPENDICESPage 96

National Disaster Recovery FrameworkFEDERAL GOVERNMENT RECOMMENDED ROLES AND ACTIVITIES.FEDERAL GOVERNMENT PRE-DISASTER CHECKLIST.• Develop Federal Recovery Support Functions (RSFs) readiness for disaster recovery response.• Promote recovery preparedness by providing guidance to local, State and Tribalgovernments and nongovernmental organizations (N G Os) on pre-disaster recoveryplanning.• Encourage use of steady-state grant programs for pre-disaster recovery mitigation,planning and preparedness activities that comply with Federal civil rights laws.• Conduct recovery preparedness planning, training and exercises based on Federal agencyroles and responsibilities in disaster recovery.• Whenever possible, offer incentives to grant recipients to incorporate hazard mitigation,sustainability and natural and cultural resource protection techniques in any land use orinfrastructure projects.• Provide leadership for national catastrophic incident recovery planning.• Facilitate the sharing of planning best practices and recovery plans adopted by variouslocal and State jurisdictions.• Conduct education and outreach for disaster recovery programs and resources to potentialrecipients and other stakeholders.• Foster a culture of open government by incorporating the values of transparency,participation and collaboration into programs, planning and daily operations to includeunderserved populations.• Evaluate program effectiveness; remove regulatory barriers, incorporate lessons learnedand best practices while leveraging innovative technologies to increase efficiency andpropose and enact reform changes as necessary.• Explore research on effective methods that can be used at the local, State and Tribal levels.• Ensure Federal agencies, where permissible, require mitigation activities as a criterion forapproving funding to local, State and Tribal governments.• Conduct education and outreach for mitigation, disaster recovery programs and resourcesto potential recipients and other stakeholders.Table 36.APPENDICESPage 97

National Disaster Recovery FrameworkFEDERAL GOVERNMENT RECOMMENDED ROLES AND ACTIVITIES.FEDERAL GOVERNMENT POST-DISASTER CHECKLIST.• Deploy a Federal Disaster Recovery Coordinator (FDRC) and activate and deployRecovery Support Functions (RSFs) when determined necessary and establish a recoverycoordination structure in close collaboration with affected local, State and Tribalgovernments.• Identify how Federal programs can effectively address and support recovery needs.• Provide timely, accurate and accessible information to the public and manageexpectations in coordination with local, State, Tribal and other stakeholders.• Monitor and make necessary adjustments to Federal assistance programs and theirdelivery to more appropriately and timely address recovery needs of the affected local,State and Tribal communities.• Ensure transparency and accountability of Federal expenditures that aid disaster recovery.• Coordinate with the various State agencies and officials to ensure that they have anunderstanding of how to avoid duplicate payments and whom to contact at the variousFederal agencies to answer related questions.• Participate in and support local, State and Tribal recovery planning and mitigation effortsthrough technical assistance, expertise or other assistance as requested and needed.• Coordinate Federal recovery efforts with private and nonprofit organizations incooperation with local, State and Tribal officials.• Develop, or refine existing, metrics to evaluate recovery progress and the achievement ofFederal disaster recovery objectives.Table 37.Page 98

National Disaster Recovery FrameworkAPPENDIX C:PLANNING FOR A SUCCESSFUL DISASTER RECOVERY.INDIVIDUALS AND FAMILIES PRE-DISASTER PLANNING ACTIVITIES.Individuals who prepare for their recovery help their community’s recovery as well. Familiesand individuals are encouraged to:• Develop an individual or family plan (that includes pets if appropriate) for disaster recovery.• Become knowledgeable about hazards and hazard locations in and around home, workand the community.• Self-assess risk exposure and incorporate mitigation practices.• Purchase and maintain appropriate and adequate levels of insurance for potential hazardsin the area.• Work with others to prepare and reach out to those who may need assistance.• Acquire and maintain survivability skills such as first aid.Table 38.INDIVIDUALS AND FAMILIES POST-DISASTER PLANNING ACTIVITIES.Disaster recovery begins with individuals and families with an emphasis on personalresponsibility in preparedness and recovery efforts. Individuals and families are encouraged to:• Take charge of managing individual and family (including pets where appropriate)recovery.• Participate in post-disaster community recovery planning.• Work with others to reach out to those who may need assistance.• Engage in public involvement opportunities on specific recovery projects.Table 39.APPENDICESPage 99

National Disaster Recovery FrameworkPRIVATE SECTOR/BUSINESSES PRE-DISASTER PLANNING ACTIVITIES.Pre-disaster planning for the private sector and businesses integrates with communityplanning. The private sector and businesses are encouraged to:• Identify and understand areas of risk.• Develop, test and implement business continuity and restoration plans.• Provide training for community business leaders to assist with the businessrecovery process.• Participate in community pre-disaster planning, training and exercises.• Incorporate hazard mitigation in the design and construction of places of employmentand promote hazard mitigation to employees.• Build relationships with emergency managers to ensure an active voice in therecovery process.• Identify leaders and others to participate in community long-term recovery committees.Table 40.PRIVATE SECTOR/BUSINESSES POST-DISASTER PLANNING ACTIVITIES.The private sector and businesses play an important role in the community and are often partof community leadership. The private sector and businesses are encouraged to:• Participate in local recovery planning.• Implement business continuity and restoration plans.• Assume a significant role in local and State recovery organizations.Table 41.APPENDICESPage 100

National Disaster Recovery FrameworkNONPROFIT SECTOR PRE-DISASTER PLANNING ACTIVITIES.Nonprofits play a valuable role in communities and their preparedness efforts. Nonprofitsare encouraged to:• Define and understand areas of risk.• Develop, test and implement business continuity and restoration plans.• Build relationships with community emergency managers to ensure an active voice in therecovery process.• Facilitate and encourage the participation of leaders and representatives from traditionallyunderserved populations in local long-term recovery committees and recovery planningworkgroups.• Participate in community pre-disaster planning.• Incorporate hazard mitigation in the design and construction of places of employmentand promote hazard mitigation to employees.• Identify resources to provide services in as equitable a manner as possible.• Determine pre-disaster planning and training opportunities related to post-disasteractivities implemented by the organization.• Assist the local government with planning for the needs of individuals with disabilitiesand others with access and functional needs, individuals with limited English proficiency,children, seniors and other constituencies served by the nonprofit sector.• Help the local government with communicating disaster risks and vulnerabilities toindividuals and families in an accessible and effective manner.Table 42.NONPROFIT SECTOR POST-DISASTER PLANNING ACTIVITIES.As important community partners, nonprofits are encouraged to:• Facilitate stakeholder workshops in various accessible locations in the community todetermine priority issues for recovery that are informed by affected neighborhoods.• Implement business continuity and restoration plans.• Participate in local recovery planning.• Facilitate participation of leaders and representatives from traditionally underservedpopulations in local, State, Tribal and Federal recovery organizations.• Provide pre-disaster planning and training related to post-disaster activities implementedby the organization.Table 43.APPENDICESPage 101

National Disaster Recovery FrameworkLOCAL GOVERNMENT PRE-DISASTER PLANNING ACTIVITIES.Local governments examine community-wide issues as part of pre-disaster planning. Localgovernments are encouraged to:• Understand key hazards, risks and vulnerabilities that cause systemic and majordisruptions and challenges for disaster recovery, reconstruction and revitalization.• Communicate risks and vulnerabilities to the exposed community in an accessible andeffective manner.• Include businesses and the nonprofit sector as partners in planning.• Pre-identify hazard mitigation goals, objectives and actions and incorporate them intoongoing pre-disaster recovery planning.• Incorporate hazard mitigation in design and construction and promote hazard mitigationto community members through measures including, but not limited to, the adoptionand enforcement of appropriate building codes and standards.• Predetermine local recovery functions, roles, structures and funding for post-disasterrecovery efforts to expedite the recovery process.• Determine how local disaster support functions work with State and Federal resources, toinclude Recovery Support Functions (RSFs).• Define critical infrastructure and key services that must be restored immediately post-disaster.• Maintain capability to expeditiously and effectively address recovery challenges, suchas implementing building moratoriums, conducting damage assessments and issuingvariances necessary to assist early recovery.• Plan for the needs of individuals with disabilities and others with access and functionalneeds, children and seniors as a fundamental aspect of the recovery plan rather than as asupplement or special plan.• Take Tribal law and culture into consideration in the community planning process; instilla respect and understanding for the unique heritage and needs of Tribal governments.• Work with government agencies to articulate and solidify collaborations between local, Stateand Tribal governments, particularly when multiple jurisdictions are involved and affected.• Identify community organizations with preestablished strategies in place to reach theirstakeholders and coordinate information sharing with these organizations regardingplanning activities and meetings.• Plan for the needs of individuals and families that have been displaced by the disaster.• Plan the coordination and outreach and awareness efforts to individuals with disabilities,individuals with limited English proficiency, seniors, children and other members ofunderserved populations.Table 44.APPENDICESPage 102

National Disaster Recovery FrameworkLOCAL GOVERNMENT POST-DISASTER PLANNING ACTIVITIES.Recovery planning within a community is dependent on an active local government. Localgovernments are encouraged to:• Provide leadership in recovery planning and prioritization of goals.• Determine need and deploy a Local Disaster Recovery Manager (LDRM) or equivalent.• Incorporate principles of post-disaster planning into the recovery process.• Coordinate with relevant regional planning organizations that provide resources and/orplanning expertise.• Promote partnerships between nonprofit organizations, faith-based organizations,the private sector or other relevant organizations and nontraditional and underservedpopulations throughout the recovery process.• Review pre-existing plans and cross-check against post-disaster planning priorities.• Implement a transparent, accountable system to manage recovery resources.• Manage overall recovery coordination at the local level.• Communicate post-disaster planning as well as organizational and operational needs tothe State.• Lead an inclusive and accessible planning process, facilitating practices that comply withapplicable laws, including civil rights mandates.• Enforce all applicable Federal worker protection laws for workers who are employed torebuild the impacted community. These Federal laws include the Fair Labor Standards Act,Occupational Safety and Health Regulations, National Labor Relations Act and the laws administered bythe Equal Employment Opportunity Commission (EEOC).• Implement, coordinate and manage awareness and outreach efforts to individuals withdisabilities, individuals with limited English proficiency, seniors, children, and othermembers of underserved populations.Table 45.APPENDICESPage 103

National Disaster Recovery FrameworkSTATE GOVERNMENT PRE-DISASTER PLANNING ACTIVITIES.To carry out their essential role in recovery, State governments are encouraged to:• Establish, organize and coordinate goals, objectives and timelines for recovery.• Plan and train for State Disaster Recovery Coordinator (SDRC) and Recovery SupportFunction (RSF) roles, structures and funding among State agencies and departments.• Create a post-disaster recovery authority for catastrophic-level incidents that operateimmediately after a disaster and feature the legal and fiscal tools needed to ensure recovery.• Maintain a system to manage and monitor implementation of the recovery effort, enforceaccountability, ensure accessibility and track resources.• Identify and encourage the use of specific standards and building codes to be used duringreconstruction.• Ensure State laws and regulations do not inhibit effective recovery efforts.• Emphasize the importance of pre-disaster recovery planning at the local, State and Triballevels.• Work with local governments to solidify collaborations between governments and tointegrate pre-disaster recovery planning, such as response, land use and hazard mitigationplanning, with capital improvement and other appropriate community planning for localgovernments.• Determine which organizations within the State and region have preestablished methodsin place to reach their stakeholders.• Support local government efforts to identify organizations at the local level andcoordinate information sharing with these organizations regarding planning activities andmeetings.• Encourage local governments to establish an accessible and inclusive process foraddressing recovery challenges pre- and post-disaster.Table 46.APPENDICESPage 104

National Disaster Recovery FrameworkSTATE GOVERNMENT PRE-DISASTER PLANNING ACTIVITIES (Continued)• Include business and nonprofit sectors as partners in planning.• Coordinate and implement statewide hazard mitigation planning, projects and programswith recovery officials, disseminate hazard mitigation information and provide technicalassistance for local mitigation efforts.• Update State hazard mitigation plans.• Provide a system of State level support to local governments that request assistance or lackcapacity.• Communicate and coordinate with Federal recovery partners.• Take Tribal law and culture into consideration in the community-planning process; instillrespect and understanding for the unique heritage and needs of Tribal governments, asnecessary.• Enter into agreements that articulate collaborations between local governments andTribal governments, particularly when reservation land crosses multiple jurisdictions, asnecessary.• Clarify relationships with both State and Federal authorities to determine where Tribalgovernments fit in the allocation of disaster resources when recovery initiatives begin.• Plan for the needs of individuals and families displaced by the disaster.• Pre-identify hazard mitigation goals, objectives and action and incorporate them intoongoing pre-disaster recovery planning.• Maintain capability to expeditiously and effectively address recovery challenges, such asconducting damage assessments and using variances necessary to assist early recovery.• Advise local communities and local private and nonprofit organizations on thecoordination and outreach efforts to individuals with disabilities, individuals with limitedEnglish proficiency, seniors, children and other members of underserved populations.Table 46 (Continued)APPENDICESPage 105

National Disaster Recovery FrameworkSTATE GOVERNMENT POST-DISASTER PLANNING ACTIVITIES.States play an important role in supporting and, where necessary, leading overwhelmed localgovernments to address complex governmental, regulatory and financial challenges duringshort- and long-term recovery. State authorities:• Determine need and deploy State Disaster Recovery Coordinator (SDRC) or equivalent.• Provide a system of support to local governments.• Coordinate efforts to meet recovery challenges across all sectors in collaboration withrecovery counterparts at all jurisdictional levels.• Conduct post-disaster planning and build on the foundation constructed during the predisasterplanning phase, modifying it based on actual versus predicted risk and needs.• Develop an interface between State agencies and the Federal Government to streamlinerecovery funding at the local level.• Keep the public informed on all aspects of recovery.• Engage relevant regional planning organizations to provide resources and/or planningexpertise.• Promote partnerships among nonprofit organizations, faith-based organizations, theprivate sector or other relevant organizations and nontraditional and underservedpopulations throughout the recovery process.• Implement and enforce applicable requirements to protect the rights of its communitymembers needing physical, programmatic and communications access to recoveryactivities and services, and workers who are employed to rebuild the impactedcommunity.• Support communities and nongovernmental organizations (NGOs) with coordinationand outreach efforts to individuals with disabilities, individuals with limited Englishproficiency, seniors, children and other members of underserved populations.Table 47.APPENDICESPage 106

National Disaster Recovery FrameworkTRIBAL GOVERNMENT PRE-DISASTER PLANNING ACTIVITIES.To accomplish pre-disaster planning Tribal governments are encouraged to:• Identify and understand areas of risk.• Preassign Tribal recovery functions, roles and responsibilities to include those of a TribalDisaster Recovery Coordinator (TDRC) or equivalent.• Maintain a system to manage and monitor implementation of the recovery effort; enforceaccountability, ensure accessibility and track resources.• Integrate recovery and hazard mitigation in community planning processes andencourage hazard mitigation measures.• Coordinate with local, State and Federal governments to facilitate post-disaster efforts andensure Tribal governments have knowledge of and access to available funding and otherassistance.• Work with local governments to articulate and solidify collaborations between Tribal andlocal governments, particularly when reservation land crosses multiple jurisdictions.• Include business and nonprofit sectors as partners in planning.• Plan the coordination and outreach and awareness efforts to individuals with disabilities,individuals with limited English proficiency, seniors, children and other members ofunderserved populations.Table 48.APPENDICESPage 107

National Disaster Recovery FrameworkTRIBAL GOVERNMENT POST-DISASTER PLANNING ACTIVITIES.Tribal governments may live on land that spans multiple jurisdictions. Coordination withthose jurisdictions plays a key role in planning for a Tribe’s recovery from a disaster. Tribalgovernments are encouraged to:• Determine need and deploy Tribal Disaster Recovery Coordinator (TDRC) or equivalent.• Establish, organize and coordinate goals, objectives and timelines for recovery.• Coordinate with local and State governments to provide mutual support.• Conduct post-disaster planning by building on the foundation constructed during the predisasterplanning phase, modifying it based on actual versus predicted risk and needs.• Participate in long-term community recovery activities sponsored by State orneighboring local jurisdictions.• Develop a relationship with the Federal Government to clarify and streamline recovery funding.• Implement, coordinate and manage awareness and outreach efforts to individuals withdisabilities, individuals with limited English proficiency, seniors, children and othermembers of underserved populations.Table 49.APPENDICESPage 108

National Disaster Recovery FrameworkFEDERAL GOVERNMENT PRE-DISASTER PLANNING ACTIVITIES.The Federal Government supplements post-disaster local, State and Tribal capability forshort-, intermediate and long-term recovery governmental capacity planning and technicalassistance after extraordinary large-scale disasters or catastrophic incidents. The FederalGovernment will:• Plan for national-level responsibilities of catastrophic and regional disaster recoverychallenges.• Identify and train Federal Disaster Recovery Coordinators (FDRCs) and participants inRecovery Support Functions (RSFs) to prepare for activation as required.• Offer technical assistance to local, State and Tribal governments and stakeholders on theprocess, practices and policies of hazard mitigation.• Provide pre-disaster recovery and mitigation planning training and tools for local, Stateand Tribal governments.• Optimize and coordinate Federal programs that support local, State and Tribal recovery efforts.• Include businesses and the nonprofit sector as partners in planning.• Communicate and coordinate with local, State and Tribal recovery partners.• Encourage municipalities, States and Tribes that lack the resources to develop pre-disasterrecovery plans to use steady-state grant programs to the extent consistent with theauthorities, terms and conditions for those awards.• Facilitate the sharing of planning best practices and recovery plans adopted by variousTribal governments, local and State jurisdictions.• Identify and resolve potential conflicts among Federal programs or regulations that mayimpede timely recovery.• Maintain capability to expeditiously and effectively address recovery challenges, such asconducting damage assessments and using variances necessary to assist early recovery.• Support State and Tribal implementation of coordination and outreach efforts toindividuals with disabilities, individuals with limited English proficiency, seniors,children and other members of underserved populations.Table 50.APPENDICESPage 109

National Disaster Recovery FrameworkFEDERAL GOVERNMENT POST-DISASTER PLANNING ACTIVITIES.The types of planning assistance and level of technical support available through the FederalGovernment varies by community needs and depends on disaster impacts and the recoverycapacities of local, State and Tribal governments. The Federal Government will:• Assess disaster recovery need and deploy a Federal Disaster Recovery Coordinator (FDRC)and appropriate Federal Recovery Support Functions (RSFs) if determined necessary.• Ensure local ownership of the early recovery process through the engagement oflocal, State and Tribal authorities in the planning, execution and monitoring ofrecovery actions.• Supplement, but not supplant local, State and Tribal resources, and support local, Stateand Tribal leadership of the recovery process.• Coordinate with other Federal agencies (O F A s) to identify the geographic extent ofdisaster impacts and address the broader recovery challenges to infrastructure, supplychains, transportation systems and the like.• Maintain a system for addressing intra-governmental recovery coordination.• Assess the need for technical expertise to support prompt initiation of recovery andmaximize joint recovery efforts and resources.• Provide planning guidance, tools, resources and best practices to local, State and Tribalgovernments to facilitate their recovery planning.• Implement regulations and guidance regarding legal obligations on all aspects ofrecovery, including applicable civil rights laws, such as those that pertain to accessibilitystandards and address the needs of individuals with disabilities and individuals withlimited English proficiency.• Develop an accessible public information campaign to increase stakeholder awareness ofthe processes involved in recovery.• Support local, State, Tribal and Federal entities in the identification, use and managementof Federal grants.• Encourage the use of sustainable development and mitigation practices in disasteraffectedareas.Table 51.Page 110

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ASRSF: COMMUNITY PLANNING AND CAPACITY BUILDINGCoordinating Agency: DHS/FEMAPrimary Agencies: DHS/FEMA, HHSSupporting Organizations: CNCS, DHS, DOC, DOI, DOJ, DOT,ED, EPA, GSA, HUD, SBA, TREAS, USDARSF: ECONOMICCoordinating Agency: DOCPrimary Agencies: DHS/FEMA, DOC, DOL, SBA, TREAS, USDASupporting Organizations: CNCS, DOI, EPA, HHSRSF: HEALTH AND SOCIAL SERVICESCoordinating Agency: HHSPrimary Agencies: CNCS, DHS (FEMA, NPPD & CRCL), DOI,DOJ, DOL, ED, EPA, VASupporting Organizations: DOT, SBA, TREAS, USDA, VA,ARC, NVOADThis concludes theNationalDisasterRecoveryFrameworkRSF: HOUSINGCoordinating Agency: HUDPrimary Agencies: DHS/FEMA, DOJ, HUD, USDASupporting Organizations: CNCS, DOC, DOE, EPA, HHS, SBA,U.S. Access Board, VA, ARC, NVOADU NDEPARTMENT OF TRANSP ORTAT IONIT E D S TA T ESI C AO F A M E RRSF: INFRASTRUCTURE SYSTEMSCoordinating Agency: DOD/USACEPrimary Agencies: DHS (FEMA & NPPD), DOD/USACE,DOE, DOTSupporting Organizations: DHS, DOC, DOD, DOI, ED, EPA, FCC,GSA, HHS, NRC, TREAS, USDA, TVANUCICTEESDSSBTAOTAEDRRSF: NATURAL AND CULTURAL RESOURCESCoordinating Agency: DOIPrimary Agency: DHS/FEMA, DOI, EPASupporting Organizations: ACHP, CNCS, CEQ, DOC, IMLS, LOC,NEA, NEH, USACE, USDA, Heritage PreservationNATIONALENDOWMENTFOR THE ARTSHeritageEmergencyNational Task Force