FEMA National Disaster Recovery Framework, 2011

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September 2011

National DisasterRecovery FrameworkStrengthening Disaster Recovery for the Nation


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National Disaster Recovery Framework

Page I

TABLE OF CONTENTS.

EXECUTIVE SUMMARY, PAGE1.

INTRODUCTION, PAGE3.

PURPOSE OF THE FRAMEWORK, PAGE5.

CORE PRINCIPLES, PAGE9.

ACHIEVING DISASTER RECOVERY, PAGE13.

RECOVERY ROLES AND RESPONSIBILITIES, PAGE19.

LEADERSHIP, PAGE25.

RECOVERY SUPPORT FUNCTIONS, PAGE37.

PLANNING FOR SUCCESSFUL DISASTER RECOVERY, PAGE63.

COMMUNITY CONSIDERATIONS, PAGE71.

ABBREVIATIONS, PAGE77.

DEFINITIONS, PAGE79.

GUIDE TO FIGURES AND TABLES, PAGE83.

APPENDICES, PAGE85.


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National DisasterRecovery Framework

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 disaster

recovery 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 large-scale or catastrophic.

The NDRF provides guidance thatenables effective recovery support todisaster-impacted States, Tribes and localjurisdictions. It provides a flexible structure

that 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 recoveryprinciples

Roles and responsibilities of recoverycoordinators and other stakeholders

A coordinating structurethat facilitatescommunication and collaboration amongall stakeholders

Guidance for pre- and post-disasterrecoveryplanning

The overallprocessby which communitiescan capitalize on opportunities to rebuildstronger, smarter and safer

These elements improve recovery supportand expedite recovery of disaster-impacted

individuals, 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 decisionmaking

process 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 among

1. EXECUTIVE SUMMARY.

EXECUTIVE SUMMARY

CHAPTER


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EXECUTIVE SUMMARY

State and Federal agencies, nongovernmentalpartners and stakeholders. Each RSF hascoordinating and primary Federal agencies

and supporting organizations that operatetogether with local, State and Tribalgovernment officials, nongovernmentalorganizations (NGOs) and private sectorpartners. The concepts of the FDRCs, SDRCs,TDRCs and RSFs are scalable to the natureand size of the disaster.

The NDRF aligns with the National ResponseFramework (NRF). The NRF primarilyaddresses actions during disaster response.

Like the NRF, the NDRF seeks to establishan operational structure and to develop acommon planning framework. The NDRFreplaces the NRF Emergency SupportFunction #14 (ESF #14) - Long-TermCommunity Recovery. Key ESF #14 conceptsare expanded in the NDRF and includerecovery-specific leadership, organizationalstructure, planning guidance and othercomponents needed to coordinate continuingrecovery support to individuals, businesses

and communities.

Fundamentally, the NDRF is a construct tooptimally engage existing Federal resourcesand authorities, and to incorporate thefull capabilities of all sectors in supportof community recovery. The effectiveimplementation of the NDRF, whether ornot in the context of a Robert T. Stafford DisasterRelief and Emergency Assistance Act (Stafford Act)declaration, requires strong coordinationacross all levels of government, NGOsand the private sector. It also requires aneffective, accessible public informationeffort so that all stakeholders understandthe scope and the realities of recovery. TheNDRF provides guidance to assure that

recovery activities respect the civil rights andcivil liberties of all populations and do notresult in discrimination on account of race,

color, national origin (including limitedEnglish proficiency), religion, sex, age ordisability. Understanding legal obligationsand sharing best practices when planning andimplementing recovery strategies to avoidexcluding groups on these bases is critical.

The NDRF is a guide to promote effectiverecovery. It is a concept of operations andnot intended to impose new, additionalor unfunded net resource requirements

on Federal agencies. As responsibilities,capabilities, policies and resources expand orchange, the NDRF will be revised as neededto ensure that it continues to provide acommon and adaptable approach todisaster recovery.


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The 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, whether

it 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 the

U.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 creation

of the NDRF, and to make recommendationsfor improving the Nations approach todisaster recovery.

During the fall of 2009, DHS/FederalEmergency Management Agency (FEMA)

and HUD sponsored outreach sessions ineach of FEMAs 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 Web

portal, 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 that

emerged from these stakeholder outreachefforts. These principles are:

Individual and Family Empowerment.

Leadership and Local Primacy.

Pre-Disaster Recovery Planning.

2. INTRODUCTION.

INTRODUCTION

CHAPTER


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Partnerships and Inclusiveness.

Public Information.

Unity of Effort.

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, the

NDRF 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); Local

Disaster Recovery Managers (LDRMs);RSFs; private sector and nongovernmentalorganization (N G O) leaders; and whenneeded, the Federal Disaster RecoveryCoordinator (FDRC).

Planning Developed during both pre-and post-disaster phases.

These concepts are explained and developedin the NDRF. When combined with the full

involvement of all stakeholders, along withrealistic and well-communicated expectationsof desired outcomes, the concepts constitutethe building blocks for a successful recovery.

The NDRF and supporting guidance andtools that follow its publication form theframework of a national disaster

recovery strategy.

INTRODUCTION


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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 also

written for a larger audience of non-FederalGovernment executives, private sector andnongovernmental organization (N G O)leaders, emergency managers, communitydevelopment professionals and disasterrecovery practitioners1.

Recovery begins with pre-disasterpreparedness and includes a wide range ofplanning activities. The NDRF clarifies theroles and responsibilities for stakeholders

in 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 efforts

result 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 planning

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 priorities

and activities that are realistic, well-plannedand clearly communicated.The NDRF advances the concept that recoveryencompasses more than the restoration of acommunitys physical structures to its pre-disaster conditions. Of equal importance isproviding a continuum of care to meet theneeds of the affected community memberswho have experienced the hardships offinancial, emotional or physical impacts

as 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 to

enhance the overall resiliency of the entirecommunity as the recovery progresses.

RESOURCES

The National Disaster Recovery Framework (NDRF)is a guide to promote effective recovery it is a concept of operations and not

PURPOSE OF THE FRAMEWORK

3. PURPOSE OF THE FRAMEWORK.

CHAPTER

1.The NDRF is not intended to, and does not, create any right orbenet, substantive or procedural, enforceable at law or in equity,by any party against the United States, its departments, agencies,or entities, its ofcers, employees, or agents, or any other person.

footnote

End of footnote.

SEE FOOTNOTE


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intended to impose new, additional orunfunded net resource requirements onFederal agencies. Instead, the NDRF aims

to leverage and concentrate the effects ofexisting Federal resources, programs, projectsand activities through an organizationof Recovery Support Functions (RSFs) topromote effective recovery for affectedcommunities before and after disasterstrikes. The National Disaster RecoveryPlanning (NDRP) Division at FederalEmergency Management Agency (FEMA)Headquarters facilitates and coordinatesRSF activities and recovery planning at

the national level. Each RSF coordinatingagency will commit to designating a seniorlevel principal to serve as the RSF nationalcoordinator, provide significant engagementand management for the RSF, and ensureongoing communication and coordinationbetween the primary agencies and supportorganizations for the RSFs. The RSF nationalcoordinator also ensures coordinationand communication between the Federalagencies and corresponding local, State and

Tribal authorities and nongovernmental andprivate-sector organizations throughout thepreparedness, response and recovery phasesof a disaster.

The NDRF is not intended to increase overallFederal agency activity in support of recoveryplanning during steady-state. Accordingly,Federal agencies with NDRF roles andresponsibilities shall fund the costs arisingfrom those responsibilities out of their basebudgets and staffing levels, and, except asnoted above, shall only support steady-stateNDRF activities subject to available resources.The operational costs of Federal recoveryprograms will continue to be borne byagencies from appropriations made for suchpurposes, except for those expenses

authorized for reimbursement under theRobert T. Stafford Disaster Relief and Emergency

Assistance Act (Stafford Act)or as otherwise

provided by law.

APPLICABILITY.

The National Disaster Recovery Framework (NDRF)applies to all Presidentially-declared majordisasters though not all elements will beactivated for every declared incident. Manyof its concepts and principles are equallyvalid for non-declared incidents that haverecovery consequences. The core concepts as

well as the Recovery Support Function (RSF)organizing structures outlined in the NDRFmay be applied to any incident regardlessof whether or not it results in a Presidentialdisaster declaration.

Similar to how the National Response Framework(NRF)is the overarching interagency responsecoordination structure for both Robert T.Stafford Disaster Relief and Emergency Assistance Act(Stafford Act)and non-Stafford Act incidents,

the NDRF will provide the overarchinginteragency coordination structure for therecovery phase for Stafford Act incidents, andelements of the framework may also be usedfor significant non-Stafford Act incidents. Forexample, the Federal response to an oil Spillof National Significance, as defined underthe National Oil and Hazardous Substances PollutionContingency Plan, more commonly known asthe National Contingency Plan (NCP), may bemanaged under the NCP without a Stafford

Act declaration. Elements of the NDRFalso may be activated as needed to providecoordinated Federal recovery assistance. Theresponse to the 2010 Deepwater HorizonOil Spill was an example of an oil Spill ofNational Significance that was managedunder the NCP, and further supplemented byadditional Federal recovery assistance.



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RELATIONSHIP 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) Annexto the NRF provide a bridgebetween steady-state CIKR protection andresponse and recovery programs designedto support the maintenance and restoration

of the Nations CIKR. 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 PREPAREDNESSSYSTEM

The National Disaster Recovery Framework (NDRF)will be revised as the National PreparednessSystem is further developed and the

Prevention, 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 recovery

progress. Figure 1 indicates how responseand recovery functions are related inexample sectors.


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FIGUR

E1.RECOVERYCONTINU

UM

DESCRIPTIONOFA

CTIVITIESBYPHASE.

This recovery continuum describes overlapping recoveryactivities by phase.



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CORE PRINCIPLES THATGUIDE RECOVERY.

The National Disaster Recovery Framework (NDRF)is guided by nine core principles that, whenput into practice, maximize the opportunityfor achieving recovery success.

INDIVIDUAL AND FAMILYEMPOWERMENT.

All community members must have equalopportunity to participate in communityrecovery efforts in a meaningful way. Caremust be taken to assure that actions, bothintentional and unintentional, do not excludegroups of people based on race, color,

national origin (including limited Englishproficiency), religion, sex or disability.Care must be taken to identify and eradicatesocial and institutional barriers that hinderor preclude individuals with disabilitiesand others in the community historically

subjected to unequal treatment from full andequal enjoyment of the programs, goods,services, activities, facilities, privileges,advantages and accommodations provided.A successful recovery is about the ability ofindividuals and families to rebound fromtheir losses in a manner that sustains theirphysical, emotional, social and economicwell-being. The restoration of infrastructuresystems and services is critical duringrecovery. It is vital that all individuals who

make up the community are provided withthe tools to access and use a continuumof care that addresses both the physicallosses sustained and the psychological andemotional trauma experienced.

LEADERSHIP AND LOCAL PRIMACY.

Successful recovery requires informed andcoordinated leadership throughout all levelsof government, sectors of society and phases

of the recovery process. It recognizes thatlocal, State and Tribal governments haveprimary responsibility for the recovery oftheir communities and play the lead rolein planning for and managing all aspectsof community recovery. This is a basic,underlying principle that should not beoverlooked by State, Federal and other

4. CORE PRINCIPLES.

begin side text box.

RECOVERY CORE PRINCIPLES.

Individual and Family Empowerment.

Leadership and Local Primacy.

Pre-Disaster Recovery Planning.

Partnerships and Inclusiveness.

Public Information.

Unity of Effort.

Timeliness and Flexibility.

Resilience and Sustainability.

Psychological and EmotionalRecovery.END SIDE TEXT BOX.

CORE PRINCIPLES

CHAPTER


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disaster recovery managers. States act insupport of their communities, evaluatetheir capabilities and provide a means of

support 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 catastrophic

incident.

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 coordinated

and 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 locally-

generated tools 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. Inclusiveness

in 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, State

and 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 PRINCIPLES


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UNITY OF EFFORT.

A successful recovery process requires unity

of 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 in

coordinating 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 evolving

recovery needs.

RESILIENCE AND SUSTAINABILITY.

A successful recovery process promotespractices that minimize the communitys riskto all hazards and strengthens its ability towithstand and recover from future disasters,which constitutes a communitys resiliency.A successful recovery process engages ina rigorous assessment and understanding

of 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. Resilience

incorporates hazard mitigation and land useplanning strategies; critical infrastructure,environmental and cultural resource

protection; 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 from

the disaster through the provision of support,counseling, screening and treatment whenneeded. These needs range from helpingindividuals to handle the shock and stressassociated with the disasters 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.

CORE PRINCIPLES


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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 while

another 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 the

community 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 communitysreturn to pre-disaster circumstances,especially when the community determinesthat these circumstances are no longersustainable, competitive or functional asshown by the communitys post-disastercondition. A successful recovery in this casemay include a decision to relocate all or

some 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 or

reconstructing 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.

5. ACHIEVING DISASTER RECOVERY.

ACHIEVING DISASTER RECOVERY

CHAPTER


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.


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EFFECTIVE 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 leadership

or 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 of

government and private sector ownersand operators of critical infrastructure.

The community develops processes andcriteria for identifying and prioritizingkey recovery actions and projects.

The communitys 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 and

coordinate 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,



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such 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-historical-cultural fabric 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-disaster

recovery 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 throughout

the 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-ADMINISTEREDFINANCIALACQUISITION.

Community stakeholders need to possessan understanding and have access tobroad and diverse funding sources in

order to finance recovery efforts.

The communitys knowledge andprofessional administration of externalprograms greatly aid the recoveryprogress.

Funders and resource providerscollaborate to provide program flexibilityand implement finance planning.Recovery management and program

administration collaborate in a post-disaster environment.

Recovery management programssupport the development and maintenanceof adequate financial monitoring andaccounting systems for new and large levelsof investment. Management programs



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include 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 intergovern-mental relations influence the efficiencyof the recovery process.

Organizational flexibility facilitates theapplication of laws, regulations andpolicies in the context of disaster andenhances the governments 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 post-

disaster environment.

Organizational flexibility is compatiblewith the integrity and accountability oftaxpayer-funded programs.

RESILIENT REBUILDING.

The community rebuilds a sustainable

future 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 risk-reduction strategies into governance andlocal decisionmaking.

MEASURING RECOVERYPROGRESS.

Measuring and communicating the progress

of 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 progress

toward recovery holistically, recognizing thatrecovery outcomes and impacts are measuredbeyond a single criterion such as dollars spentor assistance delivered on a program-by-program basis. The following are successfulstrategies for measuring progress:

Recognize that recovery progress hasvariables not attributable to any one



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program 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 community-wide comprehensive 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 this

framework. 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 in

discrimination 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 and

assistance efforts, ensuring accountability andenabling prompt adjustments to meet ongoingand changing needs.

The suggested considerations listed below arealso applicable for developing metrics.



BASELINE IMPACT ASSESSMENT.

Provides a basis to define known community

recovery 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.


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Successful recovery depends on all recoverystakeholders having a clear understandingof pre- and post-disaster roles andresponsibilities (Figure 2). In keeping

with 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 and

be 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 theircommunitys recovery.

The extent to which individuals and familiesadequately prepare for disasters has animpact on the success of the recovery. Thisincludes carrying adequate insurance and

maintaining 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 and

the business community work togetherpre-disaster and develop a conceptualrecovery plan, the public is more likely to beoptimistic about the communitys ability torecover post-disaster.

Additionally, the private-sector owns andoperates the vast majority of the Nationscritical infrastructure, such as electric power,financial and telecommunications systems.These entities play a major role in the

recovery of a community or region asa whole.

6. RECOVERY ROLES ANDRESPONSIBILITIES.

RECOVERY ROLES AND RESPONSIBILITIES

CHAPTER


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Partnerships at every level are supported by Stateand Federal authorities and encouraged through

two-way communication.

FIGURE 2. COMMUNITY-FOCUSED RECOVERY.


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It is critical that disaster recovery officialsrecognize the importance of partnershipand create coordination opportunities during

pre-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 can

educate 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 groups

as well as professional associations andacademic institutions. The formidablevalue of the work of these stakeholders

resides 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 locally-

based nonprofits 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 stay

behind 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 access



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and functional needs, children, seniors,individuals with limited English proficiencyand other underserved populations. It is

crucial 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 thecommunitys 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)Plan2. Localgovernment may become overwhelmed andneed staffing, recovery expertise, leadershipor other assistance. State and Federalofficials work with local governments in the

development 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 enforcing

building 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 theAmericans with DisabilitiesAct (A D A) Best Practices Tool Kit, concerningemergency preparedness and people with

disabilities). 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 Tribal

governments 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 and

expedite 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 employers


2.For descriptions of the COG and COOP, see U.S. Department ofHomeland Security, Federal Continuity Directive 1 (FCD 1): Federal

Executive Branch National Continuity Programs and Requirements,

http://www.fema.g o v/pdf/about/ofces/fcd1.pdf

footnote

End of footnote.

SEE FOOTNOTE
http://www.fema.gov/pdf/about/offices/fcd1.pdfhttp://www.fema.gov/pdf/about/offices/fcd1.pdf


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and need their own disaster recovery plan,such as Continuity of Governments (C O G)andContinuity of Operations (C O O P), to protect and

assist their employees.

Recommended roles and activities for Stategovernments are detailed in Appendix B.,

TRIBAL GOVERNMENT.

Tribal governments, as sovereign nations,govern and manage the safety and securityof their lands and community members.Many Tribal government borders cross

multiple counties and States, presentinga unique challenge in planning responseand recovery efforts. While resources inother communities and governments maybe available and easily accessible, this isnot the case in many Tribal governmentcommunities. Understanding these basic factsassists local, State and Federal governmentswhen working with the sovereign Tribalgovernments to develop and implement theirrecovery plans.

The Federal Government is required toengage in meaningful consultation withTribal governments prior to the finalizationof policy or program implementation. Localand State governments are encouraged toengage with Tribal governments as well. (SeeExecutive Order 13 1 7 5, Consultation and Coordinationwith Indian Tribal governments.)

Recommended roles and activities for Tribal

governments are detailed in Appendix B.,

FEDERAL GOVERNMENT.

The Federal Government can playa significant facilitative role in thedevelopment of urban and rural communitiesand their social infrastructures, and can

leverage needed resources to build andrehabilitate many communities so that theyare more disaster resistant and resilient.

When a disaster occurs that exceeds thecapacity of State and Tribal resources orimpacts Federal property, other areas ofprimary Federal jurisdiction or nationalsecurity interests the Federal Governmentmay use the National Disaster Recovery Framework(NDRF)to engage necessary and availabledepartment and agency capabilities tosupport local recovery efforts.

The Federal Governments supporting role isespecially important during the early weeksafter a large-scale disaster or catastrophicincident, when many local, State and Tribalgovernments are overwhelmed with responseand relief efforts. The duration and extent ofFederal support is determined in part by thescale and enduring impacts of the disaster.The Federal Governments disaster recoverymanagement and support systems must bescalable and adaptable so changes can be

made quickly and effectively to meet theneeds of the specific disaster.

The Federal Government also plays animportant role in providing accessibleinformation to the public and all stakeholdersinvolved in recovery, including informationabout Federal grants and loans with potentialapplications to recovery. In coordinationwith local, State and Tribal communicators,the Federal Government is responsible forensuring that information is distributedas well as understood, so that the public,Congress, the private-sector and allstakeholders are informed and aware ofthe process and realistic expectationsfor recovery.



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Federal agencies may be directed by thePresident to provide Federal-to-Federal orother support. Federal agencies without

recovery 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 Government

has 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 1993

and 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 (NGOs) to achieve the optimalbenefit for those impacted.

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 Federal

Government requires that all recipientsof Federal assistance comply with civilrights obligations under Section 504 of the

Rehabilitation Actand Title V I of the Civil RightsAct of 19 64, and theAge 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 the

Recovery Support Functions (RSFs) aredetailed in the RSF Annexes.



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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 prominent

system 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 as

well 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 the

recovery at the local, State or Tribal level. Theexperience and skill sets of these individualsshould include a strong basis in communitydevelopment and good knowledge ofthe communitys demographics. Whilethese positions will often interact with the

emergency 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 thejurisdictions primary point of contact (PO 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 role

under 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.

7. LEADERSHIP.

RECOVERY COORDINATORS

CHAPTER


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Table 1a


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Table 1b


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Table 1c


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Responsibilities of LDRMs and SDRCs/TDRCs may include, but are not limited tothose listed in Tables 1a, 1b and 1c on the

preceding 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 disasters

and 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 State

and/or Tribal Disaster Recovery Coordinator(SDRC/TDRC) to facilitate disaster recoveryin the impacted State or Tribal area.

FDRC AUTHORITY.

Nothing in the National Disaster Recovery

Framework (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 thePresidents 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 programs

and interagency processes required foreffective implementation of recoveryinitiatives. In addition to existing subject-matter expertise, FDRCs maintain trainingand credentialing emphasizing consistent andeffective practices. Qualified FDRCs aresenior level officials empowered to directly


3.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 at

the direction of the President. When Federal military and civilian personnel

and resources are authorized to support civil authorities, command of

those forces remain with the Secretary of Defense.

footnote

End of footnote.

SEE FOOTNOTE


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access 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 be

crafted to fit each individual regions risksand needs. Therefore, it will be extremelyhelpful to the success of an FDRC to have pre-established relationships 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 FDRCs 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 recovery

progress 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 disaster-

impacted individuals, 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 stakeholders

work 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 a

successful planning process that resultsin a recovery plan that is publiclysupported, actionable and leveragesavailable resources.

Work with the impacted community toincorporate mitigation and resilience-building measures into recovery plansand implementation. The goal is to



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minimize the communitys risk toall hazards and make the recoveredcommunity safer, stronger, sustainable

and 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 recovery

needs 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-discrimination

laws. 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 additional

guidance 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 Deputy

to 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 cost-effective approach to recovery activities andto determine which coordination structuresare necessary and appropriate under thecircumstances. From this assessment, the

FCO, 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 Governmentseffort to develop a Recovery Support Strategythatsupports the recovery needs of impactedcommunities, State and Tribes.



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FIGURE 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.


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The Recovery Support Strategyarticulates how allFederal agencies participate in the recoveryand coordinate support based on the needs

identified 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 and

expertise 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 may

be 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 Tribal

leadership 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 Strategyas a guide,the FDRC continuously tracks the recoveryprogress, evaluates the adequacy and paceof recovery assistance and works with local,State, Tribal, Federal, nonprofit, faith-

based and 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 and

expectations 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 regional



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Federal staff assuming greater roles incoordinating ongoing Federal support.Once this transition and coordination with

the impacted State and/or Tribal governmentis complete the FDRC demobilizes from themission and exits the impacted area.

DISASTER RECOVERYCOORDINATION

Disaster 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 incident

that 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 disaster

resiliency 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 Federal

guidance 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 may

provide 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 also



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coordinates the efforts of the RSF coordinatingagencies at the national level to support theirfield components. In large-scale disasters and

catastrophic incidents, the Division supportsthe deployed FDRC to coordinate recoveryefforts and the deployed RSFs


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The Recovery Support Functions (RSFs)comprise the National Disaster Recovery Frameworks(NDRFs)coordinating structure for keyfunctional areas of assistance. Their purposeis to support local governments by facilitatingproblem solving, improving access to

resources 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 and

through the RSFs, relevant stakeholders andexperts are brought together during steady-state planning and when activated post-disasterto identify and resolve recovery challenges.RSFs and stakeholders organize and requestassistance and/or contribute resources and

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 FUNCTIONS.

Community Planning andCapacity Building.

Economic.

Health and Social Services.

Housing.

Infrastructure Systems.

Natural and Cultural Resources.END SIDE TEXT BOX.

8. RECOVERY SUPPORT FUNCTIONS.

RECOVERY SUPPORT FUNCTIONS

CHAPTER


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PLAYERS AND SKILL SETS.

RSF staff may require different skill sets than

their 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 nonprofit

sectors 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 communities

transitioning 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 coordinate

Federal 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 the



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ESF requirements diminish, and the recoveryissues take center stage, the RSFs take overthe residual ESF activities that are associated

with 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 AND

RESPONSIBILITIES.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 recovery

phases, 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 within

an 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 participate

in 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 (Stafford

Act).

When coordinating agencies are activatedto lead an RSF, primary agencies and

supporting organizations are expected to beresponsive to RSF-related communicationand coordination needs.

NDRP DIVISION AND FDRC

The 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 facilitates

and coordinates Recovery Support Function(RSF) activities at the national level throughthe designated RSF coordinating andprimary agencies.


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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.)

DISASTER WITH CATASTROPHIC IMPACT ON MULTIPLE SECTORS(This example shows how the RSF system is adaptable t

FEMA National Disaster Recovery Framework, 2011

Documents

Transcript of FEMA National Disaster Recovery Framework, 2011