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ESF #14 SOP (Interim) DRAFT –3/07 1

LONG-TERM COMMUNITY RECOVERY

EMERGENCY SUPPORT

FUNCTION #14

STANDARD OPERATING PROCEDURES

(INTERIM)

MARCH 2007


EMERGENCY SUPPORT FUNCTION (ESF) #14: LONG-TERM COMMUNITY RECOVERY

STANDARD OPERATING PROCEDURES (INTERIM)

Foreword ........................................................................................................................................ 4

I. SOP Overview ............................................................................................................................ 5

1. Purpose ............................................................................................................................... 5

2. Goals and Objective .......................................................................................................... 5

3. How to Use the SOP .......................................................................................................... 5

II. Introduction to ESF #14 ......................................................................................................... 6

1. ESF #14 Mission ................................................................................................................ 6

2. ESF #14’s Relationship to Long-Term Community Recovery ..................................... 6

III. Organizational Structure and Components ........................................................................ 8

1. NATIONAL LEVEL ................................................................................................................... 8

1. 1 National Working Group ................................................................................................ 8

1. 2 National Response Coordination Center (NRCC) ......................................................... 9

2. REGIONAL LEVEL ................................................................................................................... 9

2. 1 ESF #14 Regional Coordinator ...................................................................................... 9

2.2 Regional Response Coordination Center (RRCC) .......................................................... 9

3. FIELD LEVEL .......................................................................................................................... 9

3.1 ESF #14 Group Supervisor ............................................................................................ 12

3.2 ESF #14 Group .............................................................................................................. 12

3.3 State ................................................................................................................................ 13

IV. Roles and Responsibilities .................................................................................................... 14

1. NATIONAL LEVEL ................................................................................................................. 14

1.1 National Working Group ............................................................................................... 14

2. REGIONAL LEVEL ................................................................................................................. 17

2.1 ESF #14 Regional Coordinator ..................................................................................... 17

3. FIELD LEVEL ........................................................................................................................ 18

3.1 ESF #14 Group Supervisor ............................................................................................ 18

3.2 ESF #14 Group .............................................................................................................. 18

3.3 State ESF #14 Coordinator ............................................................................................ 21


V. Operational Procedures ......................................................................................................... 23

1. ACTIVATION .......................................................................................................................... 24

1.1 Activation Process .......................................................................................................... 24

1.2 Activation Considerations .............................................................................................. 24

1.3 Notification Procedures ................................................................................................. 24

1.4 Requests for ESF #14 .................................................................................................... 24

2. RESOURCE DEPLOYMENT AND ASSESSMENT ...................................................................... 26

2.1 Deploy Advance Team ................................................................................................... 26

2.2 Deploy Incident Support Team ...................................................................................... 26

Conduct Needs Assessment Tool screening .......................................................................... 27

Identify anticipated staffing needs ........................................................................................ 27

3. COORDINATION AND STRATEGIC SUPPORT ......................................................................... 30

3.1 Coordinate Resources .................................................................................................... 30

3.2 Execute milestones as established in the Management Strategy ................................. 31

3.3 Provide Technical Assistance ........................................................................................ 32

4. TRANSITION AND DEMOBILIZATION .................................................................................... 32

4.1 Transfer background information/resources to ongoing recovery activities .......... 33

4.2 Demobilize ..................................................................................................................... 33

References .................................................................................................................................... 34

Appendix A .................................................................................................................................. 35

LTCR TOOLS ........................................................................................................................... 35

Appendix B .................................................................................................................................. 37

ACRONYMS ................................................................................................................................ 37

Appendix C .................................................................................................................................. 40

GLOSSARY ................................................................................................................................. 40

Appendix D .................................................................................................................................. 48

INSERT CHART FROM ESF #14 NRP ............................................................................... 48


Foreword

This Standard Operating Procedures document should be considered in the context of several other resources which inform the operation of Emergency Support Function #14, Long-Term Community Recovery (LTCR). Below is a list of these documents and their functions.

• The ESF #14 Annex of the National Response Plan provides a brief snapshot of the ESF, including purpose, scope, policies, concept of operations, organization, actions, and responsibilities.

• The ESF #14 Standard Operating Procedures (SOP) provides the “nuts and bolts” of ESF #14 operations from activation and stand up to closing out the function.

• The ESF #14 Field Operations Guide (FOG) focuses on the procedures and processes to conduct LTCR community assessments, LTCR planning, citizen participation, and recovery value project ratings, and LTCR implementation support activities. This document also describes the collaboration model used with State and local officials, details coordination requirements to support each function, and defines a performance measurement system based on stated goals, strategic objectives, and service outcomes.

• ESF #14 Job Aids are specific tools that support LTCR activities, including the Self Help Guide and the Web-based Recovery Planning Tool.

The above documents undergo extensive review by the broad ESF #14 community. They will be revised and updated regularly, based on lessons learned and consensus surrounding best practices. Current versions of most documents can be found at the ESF #14 website: http://www.fema.gov/rebuild/ltcr/plan_resource.shtm.

http://www.fema.gov/rebuild/ltcr/plan_resource.shtm�


I. SOP Overview 1. Purpose This purpose of this document is to establish procedures and processes for the activation, operation, and demobilization of Emergency Support Function (ESF) #14, Long-Term Community Recovery (LTCR), under the National Response Plan (NRP). It includes delineation of the ESF #14 mission, staffing, roles and responsibilities, internal/external strategic information flow, and coordination processes. As the Coordinating Agency for ESF #14, the Department of Homeland Security (DHS) Federal Emergency Management Agency (FEMA) is responsible for coordinating the provisions of Federal long-term community recovery support to help address the needs identified by the affected State, local, and tribal authorities. It is important to keep in mind that this document is intended to provide guidance. It will be the basis upon which ESF #14 will organize in the event of a disaster. While the SOP provides the framework for ESF #14, the operational procedures will be developed to meet the specific requirements of the disaster. 2. Goals and Objective The primary goal of the ESF #14 SOP is to create a baseline understanding of how ESF #14 is intended to function. The SOP helps to ensure that ESF #14 activities are done in a consistent manner, are flexible enough to adapt to changing circumstances, and are scalable depending on incident scope. The objective of the ESF #14 SOP is to provide guidance on operations at all levels of ESF #14. Specific objectives include ensuring that the logistics are in place to support the ESF #14 mission, providing a clear understanding of roles and responsibilities for accomplishing the mission, and ensuring that an effective transfer of knowledge and information takes place when ESF #14 demobilizes. 3. How to Use the SOP The document begins with an overview of ESF #14 to provide the reader with an understanding of the function. The second section describes the organizational structure and key entities involved in ESF #14, followed by the general roles and responsibilities of each entity during a time of disaster activation. The final section describes the procedures for various activities during a disaster. Additional detail on procedures, roles and expectations for field activities in a disaster can be found in the Field Operations Guide. This document is intended for use by FEMA staff, ESF #14 Federal partner agencies, regional and state ESF #14 coordinators, and ESF #14 field personnel deployed in support of ESF #14 activities for specific disasters. As you use this document, keep in mind that ESF #14 must be responsive and adjust to the circumstances and environment in the field, since field conditions drive the need for long-term community recovery assistance for an incident. The procedures outlined in this document are applicable to all emergencies and are intended to inform the content, scope, and flow of ESF #14 operations.


II. Introduction to ESF #14 ESF #14 – Long-Term Community Recovery provides the Federal Government a coordination mechanism for assessing and addressing post-disaster long-term disaster recovery needs of impacted communities. Federal assistance under ESF#14 is targeted for States, local and tribal governments, non-governmental organizations (NGOs) and private sector entities responsible for and/or essential to the long-term disaster recovery of the impacted communities and includes federal coordination and provision of technical assistance and other relevant federal resource for launching local long-term community recovery. Federal long-term community recovery expertise is embedded in the traditional recovery assistance programs of Federal departments and agencies. When circumstances warrant a higher level of coordination, ESF #14 serves as a mechanism to coordinate Federal programs, complete necessary assessments, administer technical assistance, and coordinate with state and local planners. ESF #14 recognizes the primary role of State and local leaders in leading long-term community recovery efforts. In accordance with the concept of providing supplemental assistance, all activities performed under the auspices of ESF #14 will focus on identifying needs and building capacity of the state and locals to address these needs. Typically initial ESF #14 activities include a greater level of direct support, i.e. needs assessment and planning. By the latter stages of activity, capacity should have been developed to allow communities to fully implement their own recovery. ESF #14 relies on the established Joint Field Office (JFO) chain of command to mobilize resources and specialized expertise in support of LTCR efforts. ESF #14 also recognizes the skills, expertise, and resources of the private sector, including non-governmental organizations (NGOs), and relies on their existing community relationships and networks to promote coordinated actions to facilitate recovery. 1. ESF #14 Mission The mission of ESF #14 is to promote successful long-term recoveries for communities suffering extraordinary damages. It does so by working through the State to identify and coordinate potential sources of recovery funding and provide technical assistance in the form of impact analyses and recovery planning support where appropriate. The mission is complete when the team has identified all potential resources, coordinated with the severely damaged areas, conducted the necessary impact analyses, and provided support to launch community recovery plans. 2. ESF #14’s Relationship to Long-Term Community Recovery ESF#14 and Long-Term Community Recovery are often used interchangeably; however, differentiating the two terms will increase the understanding of their differences and correlation. ESF#14 encompasses the specific actions undertaken to execute the mission as defined in the


aforementioned mission statement, which typically take place early in the post disaster recovery process, while Long-Term Community Recovery (LTCR) refers to the much broader and enduring process that leads to recovery. LTCR can take place whether or not ESF#14 is involved. And, depending on the disaster’s long-term impact and the impacted community’s own recovery resources and capacities, ESF#14 assistance may not be warranted at all. When provided, the intended benefit of ESF#14 is to expedite, leverage and increase the effectiveness of federal recovery assistance through coordination and collaboration among primary and support agencies and local communities. Defined in this context, ESF#14’s mission as an emergency support function activated in the beginning phase of recovery effort can be considered complete when (1) long-term impact analyses are performed, (2) necessary technical support to establish local recovery plans are provided, and (3) coordination of recovery resources needed by the impacted communities to launch their recovery efforts have been carried out. Even though ESF#14 assistance may now conclude, the local LTCR efforts will continue with an accelerated pace and greater chance of success.

ESF #14 Mission Completed

DISASTER PRE-DISASTER

LTCR implementation begins

ESF #14 Activation

JFO Activation

ESF #14 Resource Deployment


III. Organizational Structure and Components The following section provides an overview of the organizational structure and the components active in ESF #14, as well as the roles and responsibilities of each entity. There are three levels of organizational structure: National, Regional and Field Operations. 1. National Level 1. 1 National Working Group The ESF #14 National Working Group (NWG) was established to provide guidance and policy direction in support of ESF #14 field operations. It is a standing organization that convenes in Washington, D.C. and is comprised of Federal primary and support agencies that administers ESF #14 at the national level. The NWG is comprised of:

• ESF #14 NWG Coordinator and, • Primary and Support Agency Representatives

ESF #14 NWG Coordinator

The ESF #14 NWG Coordinator will serve as the national point of contact for ESF #14. The NWG Coordinator convenes the NWG and coordinates all NWG activities.

Federal Partner Agencies

Primary and support agencies, as designated by the National Response Plan, participate in all national-level ESF #14 coordination and operations activities. Agencies will assist in the identification of staff from program areas for field deployment in response to Mission Assignments.

Primary Agencies • Department of Agriculture • Department of Homeland Security • Department of Housing and Urban Development • Small Business Administration

Support Agencies • Department of Commerce • Department of Defense • Department of Energy • Department of Health and Human Services • Department of the Interior • Department of Labor


• Department of Transportation • Department of the Treasury • Department of Homeland Security (IAIP, Private Sector Office, TSA) • Environmental Protection Agency • Corporation for National and Community Service (NOTE: CNCS is not currently a

signatory to the NRP.) • Delta Regional Authority (NOTE: DRA is not currently a signatory to the NRP.) • Tennessee Valley Authority • American Red Cross

1. 2 National Response Coordination Center (NRCC) The NRCC provides national-level coordination and information sharing amongst all ESFs. The NRCC becomes operational when stood up in response to an activation. Once activated, an ESF #14 representative will be stationed at the NRCC ESF #14 desk. When the JFO is stood up and assumes the on-scene coordination, the ESF #14 NRCC responsibilities are transferred to the field. 2. Regional Level 2. 1 ESF #14 Regional Coordinator The Regional Coordinator works with states located in the region to provide information and resources on ESF #14. The Regional Coordinator also coordinates the development of a recovery Action Plan specific to the region and serves in an advisory capacity for operations in the region. At their discretion, Regional Coordinators may choose to establish a Regional Working Group to facilitate communication and coordination in their area. 2.2 Regional Response Coordination Center (RRCC) The RRCC is activated at the FEMA Regional Office to coordinate initial operations until a Joint Field Office (JFO) is operational in the impacted State. Circumstances may arise before the JFO facility becomes operational that may require ESF #14 representative at the RRCC. 3. Field Level ESF #14 activities at the field level occur at the JFO, which is the facility established in the affected state for coordination of Federal assistance to the state and local jurisdictions. Once the JFO is operational, functions performed at the NRCC and RRCC are transferred to the JFO. In accordance with the current JFO policy, the field ESF #14 organizational structure unfolds in a top-down fashion (Version 8.3; 2006). The composition and structure of the team is based on the size and complexity of the incident, as well as specific impacts to ESF #14 targeted sectors. When needed, separate functional elements are established, each of which may be further


subdivided to improve management and coordination. Responsibility for the establishment and expansion of the ESF #14 organization rests with the ESF #14 Group Supervisor in coordination with JFO leadership. The ESF #14 organization should incorporate (National Incident Management System (NIMS) guidelines when practical and when it improves management and communication. Below are the reasons why these guidelines are important:

• Establish a span of control within the organization; • Provide consistency in alignment with the JFO organization; and, • Supply a structure for communication, reporting and management.

It is recognized that different disasters will necessitate different organizational structures as events dictate. For some disasters, a single individual will support many functions, while on another, larger disaster these functions may have to be performed by multiple units. The organization should be scalable to respond to changing needs. The following figure is provided to illustrate a proposed model for a fully built out and staffed organizational structure of ESF #14. The actual configurations in the field may be different and based on the needs and level of staffing. The configuration of ESF #14 will be structured in such a way as to fold into the JFO NIMS organizational structure. The ESF #14 Group Supervisor is responsible for developing a NIMS compliant organization when practical. The following figure illustrates the relationship between the JFO and ESF #14, command and staff function, and the NIMS components within the LTCR Group


Figure 1: ESF #14 Field Organizational Structure


3.1 ESF #14 Group Supervisor The ESF #14 Group Supervisor will be the primary point of contact for the Federal Coordinating Oficer (FCO), State Coordinating Office (SCO) and the National Working Group (NWG) elements. The ESF #14 Group Supervisor directs field support staff and reports to the Response and Recovery Branch Director in the Operations Section, in accordance with the JFO policy. 3.2 ESF #14 Group In accordance with JFO policy, ESF #14 formally organizes as the ESF #14 Group within the JFO Operations Section and is responsible for establishing and maintaining working relationships with State, local, and tribal governments. It also completes initial baseline assessments, including impacts/needs and appropriate follow-on assessments to focus Federal assistance and action. It is also responsible for the preparation and execution of ESF #14 Mission Assignments for other Federal agency (OFA) support.

The ESF #14 organization is comprised of three units: Technical Assistance, Coordination, and Support. Each unit contains various elements which report to the corresponding Unit Manager, as depicted in the Organization Chart above (Figure 1). In all cases, Teams or Divisions may be established when the number of resources exceeds the manageable span of control of the ESF #14 Group Supervisor and the Unit Leader. Divisions are established to divide an incident into geographical areas of operation. Teams may be established as needed to divide the incident into functional areas of operation.

Technical Support Unit The Technical Support Unit provides targeted planning and technical recovery assistance to the impacted community as identified through the needs assessment and management strategy and consists of two teams: Technical Assistance and Planning Support. This technical support is intended to provide a resource to the community while they are in the process of recovery.

The Technical Assistance team is made up of subject matter experts who advise on technical matters and the availability of Federal programs to assist. This team also assists with problem identification and analysis and forwards recommendations to the ESF #14 Group Supervisor for resolution. The Planning Support team provides specialized information, guidance, and support about the recovery planning process and related activities, including community outreach and citizen participation. The Unit Leaders report to the ESF #14 Group Supervisor for the direct management of all operational activities. Each Unit Leader establishes objectives for each operational period.

Coordination Unit


The purpose of the Coordination Unit is to identify opportunities for coordination with FEMA and Other Federal Agency (OFA) program areas, identify unmet needs, and to identify and leverage funding resources to maximize recovery efforts. This unit is also responsible for coordination of five units: Federal Partner Agencies, FEMA Programs, State, NGOs, and other ESFs. The Unit Leader is responsible to the ESF #14 Group Supervisor for the direct management of all operational activities in this area of responsibility and will establish objectives for each operational period.

Support Unit The Support Unit will document ESF #14 activities, develop reports, establish and maintain communication and coordinate logistics, administration and finance for ESF #14. This function coordinates support for ESF #14 operations with respect to facilities, transportation, supplies, equipment maintenance, communications, et cetera. The unit is also responsible for supporting the placement of technical support staff (including associated logistics requirements) at the community level, as appropriate. The group is made up of three units: Logistics, Finance/Administration, and Reports and Evaluation. These units correspond to the JFO sections of Logistics, Finance/Administration, and Planning.

3.3 State All ESF #14 should be conducted in coordination with the State. The State directs the recovery efforts and communicates the Governor’s recovery priorities to the ESF #14 Group. The State ESF #14 Coordinator is responsible for long-term recovery information and will provide information regarding existing recovery plans and strategies, legislative initiatives, and State mitigation goals. This will be an important partnership as these programs, especially in the case of Federal funding, are in many cases administered by the State. The State clearly has a significant role throughout the recovery process and increasingly so as the process moves towards implementation. The State ESF #14 Coordinator is a member of the ESF #14 activities and should be a key champion of LTCR efforts. State resources, in addition to Federal resources, are essential to performing the needs assessment and providing technical assistance.


IV. Roles and Responsibilities The following section provides a brief overview of the participants and their roles and responsibilities for the key participants in ESF #14 activities. For more detailed information on the roles and responsibilities of each organization when active in a disaster, refer to the ESF #14 Field Operation Guide. Additional information on the organizational structure of ESF #14 can be found in the preceding section of this document. 1. National Level FEMA HQ and the NWG work jointly to help frame operational courses of action, develop policy recommendations, anticipate evolving requirements, and coordinate with any DHS and White House initiatives established to support long-term recovery. 1.1 National Working Group The ESF #14 NWG is responsible for:

• Providing advise to ESF #14 working in the field in agency program specific areas; • Providing policy direction as appropriate; • Identifying program areas and funding mechanisms to assist in recovery efforts; and • Coordinating with any DHS or White House initiatives established to support long-term

recovery. ESF #14 NWG Coordinator

• Serves as the primary point of contact for the ESF #14 Group Supervisor in the field; • Addresses inquiries from HQ and the White House regarding ESF #1 activities; • Serves as a conduit for information between the field and national level inquiries

regarding ESF #14 activities in the field; • Organizes and facilitates regular communication between ESF #14 field operations and

the NWG to exchange information and updates; and • Responds to request for technical assistance support.

The NWG Coordinator is also responsible for maintaining preparedness of ESF #14 when not active in a disaster. Some of the activities which the NWG may also be responsible for include: • Updating and revising ESF #14 materials; • Organizing and facilitating ESF #14 NWG meetings and input; and • Evaluating ESF #14 activities.


Lead Coordinating Agency Responsibilities

DHS/FEMA, Recovery Division is the Lead Coordinating ESF #14 agency and is responsible for: • Coordinationing appropriate Federal programs or expertise to support LTCR planning

and implementation, and identifying gaps under current authorities and funding; • Convening meetings pre- and post-incident to implement ESF #14; and • Staffing ESF #14 with appropriate leadership, cadre and technical support on the ground

to ensure participation in response to mission assignments.

Primary ESF #14 Agencies

The following provides an overview of the specific roles and responsibilities of primary and support agencies. For additional information on the specific specializations and resources of each agency, see Appendix D. Program specific information can be found in the FEMA publication Disaster Assistance: A Guide to Recovery Programs (FEMA-229).

Primary agencies include: • Department of Agriculture • Department of Homeland Security • Department of Housing and Urban Development • Small Business Administration

ESF #14 partners are committed to developing the knowledge base, tools, and standards of practice to contribute to the continuous improvement and effectiveness of long-term community recovery initiatives. To accomplish this goal, ESF #14 partners agree to:

• Identify staffing and support Mission Assignments of ESF #14 planning and

implementation activities as appropriate; • Support State, local, and tribal governments with the development of long-term

implementation capabilities (e.g., the development of Recovery Committees and Subcommittees devoted to housing, infrastructure, etc.);

• Support development of plans to monitor performance and gauge success of long-term community recovery activities;

• Actively participate in after-action reviews and critiques; • Identify areas of collaboration with designated headquarters and regional ESF #14

support agencies and State agency counterparts and the private sector, including nongovernmental organizations (NGOs) and technical advisors, as appropriate, in order to facilitate planning efforts and issue resolution;

• Lead assessment efforts for areas of agency expertise, and lead post-incident assistance efforts for areas of department/agency expertise;


• Identify and communicate ongoing or pending Federal activity (funding, project, etc) in disaster area; and

• Provide ESF #14 field staff with relevant agency contacts on the ground.

Support Agencies

The roles of a support agency may shift to a primary role if that agency has a particular authority or expertise given the type of disaster. Local level offices of support agencies can often provide an accurate description of the impact of disaster on the community. Supporting Federal ESF #14 Agencies include: • Department of Commerce • Department of Defense • Department of Energy • Department of Health and Human Services • Department of the Interior • Department of Labor • Department of Transportation • Department of the Treasury • Department of Homeland Security (IAIP, Private Sector Office, TSA) • Environmental Protection Agency • Corporation for National and Community Service (NOTE: Corporation for National and

Community Service is not currently a signatory to the NRP.) • Delta Regional Authority (NOTE: DRA is not currently a signatory to the NRP.) • Tennessee Valley Authority • American Red Cross

Support agencies:

• Fulfill mission assignments as requested; • Participate in planning efforts for areas of agency expertise; • Provide program assistance and expertise as appropriate in coordination with other ESF

departments and agencies; and • Identify areas of collaboration with Federal Departments and Agencies, the private

sector, including NGOs, and technical advisors, as appropriate.


2. Regional Level 2.1 ESF #14 Regional Coordinator The ESF #14 Regional Coordinator will consult with the NWG to ensure that regional ESF #14 activities are consistent with Federal Partner national policies. The ESF #14 Regional Coordinator is responsible for:

• Coordinating the development of a recovery Action Plan, specific to the Region. The Action Plan may include:

o State ESF #14 Points of Contact o Training requirements o Communications strategy o Outline roles and responsibilities of key regional stakeholders o Proposed regional ESF #14 structure

• Providing advice to the NWG and NRCC on the need to deploy representatives to conduct initial assessments and determine the potential staffing requirements.


3. Field Level 3.1 ESF #14 Group Supervisor The ESF #14 Group Supervisor is responsible for all ESF #14 field operations and activities. As the lead, the ESF #14 Group Supervisor is responsible for:

• Providing reports to the Response and Recovery Branch Director (JFO leadership); • Establishing the ESF #14 organization in the field; • Developing the composition of the team to meet the requirements based on actual or

anticipated needs; • Coordinating the assessment, technical assistance and planning activities; • Identifying ways to build both capacity and capability at the State and local levels; and • Working with State and local government to agree on how best to deliver ESF #14 LTCR

support. 3.2 ESF #14 Group The ESF #14 Group is comprised of three units: Technical Support, Coordination and Support. Each Unit Leader reports to the ESF #14 Group Supervisor. The roles and responsibilities of each of the units will be developed in greater detail by the ESF #14 Group Supervisor to meet the particular needs of the disaster.

Technical Support Unit

The primary functions of the Technical Support Unit are as follows:

Technical Assistance Team

• Reports to the Technical Support Unit Leader; • Coordinates and completes assessments; • Provides technical assistance at workshops and other venues; • Develops recommended framework for interacting with State (based on capacity and

commitment of State) from various policy/sector perspectives; • Works with the State to develop the framework for providing technical support to

communities; • Responds to requests for technical assistance; and • Assists with the transfer of implementation to TRO, region, state, and community.

LTCR Plan Support Team

• Reports to the Technical Support Unit Leader;


• Provides consultation to tailor planning model for each community; • Assists with planning to obtain community input; • Helps communities to prioritize community recovery projects; • Assists with identification of potential funding resources for priority projects; • Provides training to enable local officials to assume coordinating and planning functions; and • Coordinates with Mitigation to incorporate the local and State hazard mitigation plans.

Coordination Unit

The primary functions of the teams in the Coordination Unit are as follows:

Federal Partners

• Report to the Coordination Unit Leader; • Identify and convey any Federal activity (funding, project, etc) in disaster area; • Coordinate requests for Federal technical assistance, outreach, etc.; • Identify Federal resources related to ESF #14 related to ESF #14 activities; • Develop local Federal office staff contact lists; and • Develop strong working relationship with state and/or regional offices of Primary and

support agencies involved in recovery efforts.

FEMA Programs

• Report to the Coordination Unit Leader; • Act as a liaison to Individual Assistance (IA), Mitigation and Public Assistance (PA); • Obtain access to IA, Mitigation and PA information/database; • Interface as needed; and • Through the liaison, provide ESF #14 information to IA, PA, and Mitigation

State Coordinator or Designated Liaison • Reports to the Coordination Unit Leader; • Identifies and communicate any state activities (funding, projects, etc.) in disaster area; • Identifies local/State contact list associated with State program activities; • Identifies State resources in disaster areas; • Coordinates requested Technical Assistance and Outreach; and • Identifies and integrate applicable existing State and local planning activities.

Other ESFs

• Report to the Coordination Unit Leader;


• Liaise to ESFs 1,3,6,8,10,11,12 and 15 as needed; • Obtain access to above ESFs; • Collaborate as needed; and • Through the liaison, provide ESF #14 information to above ESFs.

NGOs

• Report to the Coordination Unit Leader; • Identify any business, industry, and non-profit impacted by the disaster; • Research networking channels for affected NGOs; • Develop NGO contact list; • Identify NGO resources and coordinate applicable activities; and • Identify and integrate applicable existing NGO planning activities.

Support Unit The main functions of the units in the Support Unit are as follows:

Logistics Team

• Reports to the Support Unit Leader; • Support the placement of ESF #14 technical support at the local level as appropriate; • Coordinate, compile, and submit logistics needs and requests to Group Supervisor; and • ESF #14 Logistics Unit Leader = Liaison w/JFO Logistics Section.

Reports and Evaluation Team

• Report to the Coordination Unit Leader; • Coordinate and compile reports, information, data collection, etc to incorporate into IAP; • Prepare weekly M.A. reports & submit to Group Supervisor; • Integrate Federal Partners assessments with the technical assistance assessment; • Provide Mapping Requests; • Coordinate and compile community field reports (as appropriate); • Publish all plans, tools, fact sheets, website, etc.; • Document lessons learned; • Evaluate success/limitation of planning assistance, tools and products; • Evaluate community input; • Evaluate overall coordination efforts of Federal, state, local government, NGO, and other

ESFs;


• Track benchmarks as established in the Management Strategy by the ESF #14 Group Supervisor in web-based planning tool; and

• Conduct and prepare periodic and final evaluation reports to include lessons learned, planning assistance, tools, products, community input and coordination efforts.

Administrative/Finance Team

The Administrative/Finance team within the Support Unit is established if an incident requires significant financial, reimbursement, or administrative support services. If established, this team monitors multiple sources of funds, tracks and reports funds spent or obligated, and reconciles operational records with financial records. The team

• Reports to Support Unit Leader; • Liaises with JFO Admin/Finance Section; • Handles contracting, MOUs, Agreements, Mission Assignments and related activities; and • Coordinates and compiles staffing needs requests for the Group Supervisor.

3.3 State ESF #14 Coordinator The State has many responsibilities and plays an important role throughout the recovery process. The State ESF #14 Coordinator is a position designated by the State to coordinate State plans and available resources to support long-term community recovery in close collaboration with Primary and support agencies, regional, local, and tribal partners, and the private sector, including NGOs. The State ESF #14 Coordinator(s) are responsible for:

• Providing ESF #14 information on existing state plans and guidelines; • Participating in the needs assessment process; • Identifying assistance needs at the State and Local level; • Identifying assistance at the State level which may be provided to the impacted

community; • Working as part of the ESF #14 team with the local community to craft the vision for

long-term recovery and provide support to local planning efforts for recovery; • Overseeing the implementation of Long-Term Community Recovery; • Participating in a Task Force to address recovery issues, if relevant; • Providing information to the State Coordinating Officer (SCO) and to State emergency

management officials about recovery priorities and needs; • Identifying and communicating any state activities (funding, projects, etc.) in disaster

area; • Identifying local/State contact lists associated with State program activities; • Coordinating requested Technical Assistance and Outreach;


• Identifying and engage appropriate State agencies in long-term community recovery coordination, planning and implementation activities;

• Developing supporting action plans as appropriate; • Working closely with local officials to facilitate the integration of State and local

planning and streamlining decision making and problem solving processes as appropriate; • Linking Hazard Mitigation Plans to the LTCR process; • Identifying and incorporating land use and growth management plans into the LTCR

process.


V. Operational Procedures


1. Activation The following section details how ESF #14 resources are mobilized to the field and discusses the activities that ESF #14 is responsible for in the field. Objective: 1. Inform primary and support agencies that a significant event has occurred and NRCC Level

1 activation has taken place. 1.1 Activation Process

1) A federally declared disaster takes place. 2) NRCC develops and issues operation orders to activate ESF #14 based on the actual or

anticipated scope and magnitude of the event. 3) ESF #14 Coordinator is stationed at the NRCC desk notifies the NWG of activation. 4) The NWG and the Regional ESF #14 Coordinator will advise and consult with the NRCC

and RRCC, and vice versa, to the extent possible on ESF #14 deployment decisions. 1.2 Activation Considerations ESF #14 activation is considered when the routine Federal, state, local, and tribal disaster assistance mechanisms are insufficient to meet the needs of the affected jurisdictions because of resource demands or needs for specialized assistance. ESF #14 can be activated by the NRCC in response to a major disaster declared under the Stafford Act.

• National alert and notifications messages are issued through the FEMA Operations Center (FOC) and regional alert and notification messages through the Mobile Emergency Response Support (MERS) Operations Center (MOC) supporting the affected region.

• FEMA provides ESF #14 representatives to staff the NRCC desk coordinate ESF #14 support from the region.

1.3 Notification Procedures

1) ESF #14 primary agencies receive activation notification through the NRCC. 2) ESF #14 NWG Coordinator notifies partner agencies through the NWG and will

communicate to the entire NWG (via telephone, electronic mail, etc.). 3) Primary and support agencies will maintain and regularly update a contact list of HQ and

regional staff which may serve as resources for ESF #14 activities. 4) Deployment of primary and support agencies to support ESF #14 mission and activities

issued through Mission Assignments. 1.4 Requests for ESF #14


Requests for ESF #14 resource deployment may come from a variety of sources. Such requests should be documented in writing, and should be submitted using appropriate channels as follows:

• Requests initiated by ESF #14 Group Supervisor or ESF #14 primary or support agencies should be submitted to the FCO.

• If ESF #14 is not present in the field, FCO may request sector specific support. • Requests initiated by the State should be submitted by the SCO to the FCO.


2. Resource Deployment and Assessment

The following section details how ESF #14 resources are mobilized to the field. This section addresses the activities required before ESF #14 fully deploys to the Joint Field Office (JFO).

Objectives: 1. Establish operational area for ESF #14 to convene to complete the mission. 2. Conduct Needs Assessment Tool to determine the level of resources to be deployed to the

field. 3. Effectively mobilize resources to the Joint Field Office through ESF #14.

2.1 Deploy Advance Team The ESF #14 Advance Team consists of the ESF #14 Group Supervisor, a Logistics Coordinator, and/or an Administrative Assistant, as appropriate.

Tasks • Provide operation and coordination area within the JFO and provide essential equipment

for incoming ESF #14 staff; • Address logistical support as required to ESF #14; • Evaluate JFO and ESF #14 training needs and resources;

• ESF #14 Group Supervisor establishes contact with appropriate State officials and with key JFO staff;

• ESF #14 Group Supervisor attends relevant meetings to increase situational awareness and to communicate ESF #14 roles/responsibilities; and

• ESF #14 Group Supervisor identifies reporting requirements, including frequency and timing, to ensure effective written communications about ESF #14 activities and accomplishments with other entities at the JFO.

2.2 Deploy Incident Support Team The ESF #14 Incident Support Team (IST), consisting of FEMA, Federal agency staff, and disaster specialists and is responsible for initiating the community needs assessment process and LTCR aspects of Federal domestic incident management, as well as coordinating with any White House initiatives established to support long-term recovery.

Tasks • Conduct Needs Assessment Tool screening; • Identify anticipated needs and staffing requirements; • Develop Management Strategy; and • Submit mission assignments to FCO.


Conduct Needs Assessment Tool screening The Needs Assessment and Sector Analyses are critical components to ESF #14 LTCR because they will provide an understanding of the type of assistance a community may require. Assessment activities occur throughout the lifecycle of ESF #14, with the majority of the assessments occurring early in the operation. This allows ESF #14 support to make projections about the level and types of assistance needed and the potential long-term implications of disaster damage to be tailored to the community. More detailed sector analysis may be conducted after completing the Preliminary Screening phase of the Needs Assessment Tool. These tools assist the ESF #14 Group Supervisor, the IST and the State ESF #14 Coordinator in developing a strategy to advance LTCR efforts. The type of assistance available to the community will depend on the Needs Assessment findings, State input and other assessment activities and results. The Needs Assessment Tool is used to gather information regarding the potential long-term impacts from a disaster, determine the existing capacity of affected jurisdictions to recover, and identify the key stakeholders for long-term community recovery. Additional details on the Long Term Recovery Needs Assessment Tool are in the Long Term Recovery Needs Assessment Methodology document and the Field Operations Guide. Specific actions to be undertaken by the IST to support assessment include:

• Researching the most seriously affected government units in the impacted area that may require LTCR planning and technical assistance. This aspect of assessment is closely coordinated with regional staff;

• Requesting a preliminary contact list (phone, cell, e-mail) comprising representatives from the NWG, Regional offices, FEMA programs, state agencies, and other relevant contacts;

• Assembling ESF #14 background and reference materials for ESF #14 support personnel to be deployed to the field. A consolidated resource library will to be available to key ESF #14 staff deploying to the field. These resources serve as a reference document containing important information (e.g., SOP, contact lists, NRCC chronology, summary/overview of impacted area) to facilitate more effective stand-up of ESF #14 operations at the JFO. Because connectivity is limited in the early stages of standing up operations at the JFO, both hard-copy and electronic versions of the resource materials are prepared; and

• Collecting information from primary and support agencies on status/findings of assessments they may have underway that might contribute to an improved understanding of long-term community recovery needs and requirements.

Identify anticipated staffing needs Once the Needs Assessment Tool is completed and other assessment materials have been reviewed, the IST will identify anticipated staffing needs including number of staff and


specific skill sets required. Deployment of ESF #14 staffing resources is based on the following considerations:

• A large number of casualties and/or displaced persons; • Extensive housing damage; • Environmental damage that forces long-term or permanent relocation for a significant

portion of the population; • Infrastructure damage of a severity and scale likely to cause major service impacts

and economic disruptions; • Severe economic or physical damage to key industries; and, incapacitated local

governments; and/or • State and local request for assistance.

Develop the Management Strategy In the field, the ESF #14 Group Supervisor will develop the Management Strategy with input from the IST. The Management Strategy provides the justification for ESF #14 activities, outlines next steps for assistance, staffing, and resource allocation, and requests additional resources to complete these objectives. This plan relies on close collaboration with the ESF #14 State Coordinator and other State officials responsible for long-term community recovery. The State will be involved in the preparation and development of the document, which will provide a uniform expectation of anticipated recovery assistance from the outset. The following elements are contained in the Management Strategy and will be completed after the Needs Assessment has been conducted.

Management Strategy Outline • Current Situation • Recommendations from Needs Assessment Tools • ESF #14 Group Supervisor Recommendations (based on additional input and outside

assessments) • Overall Strategic Approach • Recovery Strategy • Benchmarks and Performance Measures • Staffing Plan • Communications Plan • Strategic Timeline


Once developed, the Management Strategy will be presented to the FCO for review and concurrence. The details of the Management Strategy are in the ESF #14 Field Operations Guide.


3. Coordination and Strategic Support The coordination and planning processes will begin when the objectives from the Assessment and Resource Mobilization have been achieved. The findings obtained from the Needs Assessment Tool will determine the extent of assistance to be provided by ESF #14. The level of assistance, as determined by the findings of the needs assessment, will provide the justification for staffing requests to implement this assistance. These findings from the needs assessment tool and the level of ESF #14 assistance will be outlined clearly in the Management Strategy. The following section will discuss in general terms probable ESF #14 activities that may occur during the coordination and planning support phase. The roles and responsibilities section of the document describe each unit in more detail. It will be the responsibility of the ESF #14 Group Supervisor, in consultation with the State counterpart, to establish the specific operational objectives for the ongoing ESF #14 activities. Objective: 1. Coordinate federal agency resources and program specific expertise to address recovery

issues identified through the Needs Assessment Tool. 2. Execute milestones as established in the Management Strategy. 3. Provide community with technical assistance to address recovery needs. 4. In coordination with State and local entities, identify potential funding streams to match

project needs. 5. Provide appropriate level of coordination and communication with non-governmental

organizations, non-profit and private sectors. 3.1 Coordinate Resources Coordination is the critical function that occurs throughout all phases of ESF #14 operations. ESF #14 identifies the appropriate Federal programs or expertise needed to support LTCR planning and implementation, and identifies gaps within current authorities and funding. Probable Coordination Activities The following discusses in general terms the activities that may take place to facilitate coordination. These are provided to illustrate the concept of coordination. Specific examples and strategies for coordination can be found in the Field Operations Guide.

• Engage designated State officials responsible for long-term recovery who provide vital information regarding existing State recovery strategies and initiatives.

• Coordinate ESF #14 activities with appropriate ESFs and provide information for external dissemination to ESF #15-External Affairs. Activities are also coordinated with other FEMA program areas including Individual Assistance, Public Assistance and Mitigation.


• Coordinate the identification of appropriate Federal programs or expertise to support planning and implementation, and to identify gaps under current authorities and funding.

• Engage voluntary agencies in the long-term community recovery activities. This sector can provide a critical link to the community and may access additional information on the impacts of the disaster on the community and serve as a conduit to the community at large.

• Engage the private sector in long-term community recovery activities. ESF #14 coordination mechanisms must extend to this sector to exchange information and explore meaningful ways for the private sector to actively participate.

• Link public officials at the State and local levels, agency representatives, private sector leadership, voluntary agency leaders and technical resources to coordinate early resolution of issues and minimize delays with respect to delivery of Federal assistance.

• Identify programs, waivers, funding levels, requests for additional authorities, and possible new legislation needed to address programmatic gap areas in close consultation with the affected State.

• Provide recommendations to senior government officials for actions to address authority and funding gaps in order to facilitate effective long-term community recovery activities.

Examples of Coordination Activities

• Hold community meetings to gather feedback on recovery priorities. • Develop resource fairs to disseminate information on assistance and funding for projects

identified by the community. • Convene a Federal-State Task Force to provide technical assistance to the community and

identify ways to leveraged assistance between agencies. • Establish website for information sharing and exchange

3.2 Execute milestones as established in the Management Strategy Operational milestones will be outlined in the Management Strategy to address the specific assistance ESF #14 will provide. The completion of these milestones will be indicators of the fulfillment of the ESF #14 mission. Probable Strategic Activities

• ESF #14 Group Supervisor will adjust staffing levels and skill sets to meet the specific work needs throughout the ESF #14 process.

• ESF #14 group may assist the community in the identification of recovery projects. • Hold public meetings to discuss recovery projects. • Assist the community in the prioritization of recovery goals. • Develop projects which will serve as catalysts to recovery. • Support the State in the development community recovery plans.


• Identify funding opportunities to support recovery projects • Identify and inform primary and support agencies of limitation of programmatic funding

and recommend possible policy changes.

3.3 Provide Technical Assistance Technical Assistance incorporates a wide variety of services which may be provided to a community. Technical assistance may occur as targeted support to a heavily impacted sector or may provide broad-based support to a community. The type of assistance provided will depend on the resources and capabilities available to the local community in a post-disaster environment. ESF #14 technical assistance will supplement the State and local capacity. Probable Activities

• Identify community recovery strategies and priorities in a comprehensive and unified way.

• Review sector analysis to target assistance. • Provide subject matter experts to assist the community in long-term recovery projects. • Assist the community in articulating their recovery priorities. • Establish a local recovery field office in the impacted community as needed. • Identify requests for and deliver technical assistance. • Conduct outreach to Federal, State, and local agency representatives to identify technical

resources and inform communities of available resources and assistance. 4. Transition and Demobilization Transition and demobilization will take place when the ESF #14 mission is complete. The mission is complete when it is determined through consultation with the State, that the objectives identified in the management strategy have been met. A primary goal of standing down ESF #14 operations is to ensure an effective hand-off of the comprehensive institutional record of ESF #14 activities from beginning to end. In standing down, ESF #14 is responsible for ensuring that all data files, documents and reports, correspondence, and supporting information is organized for ease of use. It should be assumed that hard copies and electronic versions of all materials will be maintained. Objective

1. Provide community and Long-Term Community Recovery initiatives with information and resources to continue recovery processes.

2. Close ESF #14 operations after successful completion of ESF #14 mission objectives.


4.1 Transfer background information/resources to ongoing recovery activities

Tasks

• Organize data collected during ESF #14 activities. • Identify ongoing coordination requirements. • Determine need for any ongoing Federal assistance. • Evaluate the need for interagency agreements with appropriate agencies (agencies having

continuing “recovery” tasks above and beyond routine operations). • Provide a stand-down briefing to the FCO. • Identify and transition any remaining activities in planning and technical assistance to the

Recovery Office.

• Transfer archive materials to the State long-term community recovery agency and the Recovery Office.

• Provide guidance on next-steps to the State long-term community recovery agency and the Recovery Office.

4.2 Demobilize

Tasks • Coordinate with the State and Response and Recovery Branch Director on the ESF #14

demobilization date. • Review mission objectives with the State and document the successful completion of the

objectives. • Ensure that all transition activities are complete prior to departure. • Brief supervisors on ESF #14 activities, achievements and follow-up activities.


References

FEMA Long-Term Recovery Assessment Tool: A Guide to Identifying the Need for Federal Assistance with Long-Term Recovery Planning and Implementation National Response Plan

National Incident Management System

Planning for Post-Disaster Recovery and Reconstruction (FEMA/APA PAS # 83/483) Robert T. Stafford Disaster Relief and Emergency Assistance Act, 42 U.S.C. 5121-5206 Joint Field Office Activation and Operations: Interagency Integrated Standard Operating Procedure Version 8.3


Appendix A

LTCR TOOLS

• Job Aids • Job aids are specific tools are specific tools that support LTCR activities these

include: o Needs Assessment Tool (NAT)

The Needs Assessment Tool is intended to help authorities analyze the impacts of a disaster on a community, while taking into consideration the local government’s capacity to assist in promoting its own long-term recovery. The NAT takes a holistic approach to community recovery by looking at how damages can result in impacts greater than the material scope of a disaster, and by identifying gaps in recovery assistance. This tool assists Federal and multi-level decision makers identify the type and level of supplemental long-term community recovery assistance that may be needed for full recovery from a disaster, though it is not tied to any specific funding sources.

o Self Help Guide

The purpose of the guide is to provide communities with a framework for long-term community recovery that has been used by FEMA and its technical advisors over the past several years. This LTCR process has been successful in bringing communities together to focus on their long-term recovery issues and needs and to develop projects and strategies to address those needs. The recovery effort for these communities is still underway, but the LTCR plan and the process employed to develop the plan has been a critical part of their recovery effort. The first step in long-term community recovery is the recognition by the community of the need to organize and manage the recovery process as opposed to letting repairs and rebuilding occur without a cohesive, planned approach. While FEMA is able to provide assistance to the most critically impacted communities that do not have resources to undertake a LTCR process, FEMA will not be able to provide that level of assistance to all communities. This guide is designed for communities with the resources to undertake the LTCR planning process themselves.

o Recovery Value Tool (RVT) The Recovery Value Tool is intended to assist a long-term community recovery planning team in assessing the recovery value of projects derived from the planning process and to eventually assign specific Recovery Values to projects that are contained in the community’s recovery plan. The tool addresses the recovery process in a comprehensive manner and takes a holistic perspective on the process of determining a project’s value to the recovery of a particular community. The RVT Provides a summary of the recovery value concept that can


be used in each community recovery plan as an explanation to federal, state, and local agencies as well as to the community in general.

• Management Strategy

• The management Strategy will be developed by the ESF #14 Group Supervisor following the initial completion of the Needs Assessment Tool. The purpose of the Management Strategy is to provide a clear plan for how ESF #14 will implement the recommendations identified in the Needs Assessment. The FCO, FEMA Regional and National Offices and the State will be presented this strategy once developed. The Management Strategy is the strategic guide that lays out the programmatic development of ESF #14 and provides the rational for the overall program. After the strategy is reviewed by these agencies and approval is provided, it is possible the strategy will be shared with other relevant stakeholders, including Other Federal Agencies and FEMA field staff.

The Management Strategy will outline the plan for providing planning support to meet the community needs and establishes benchmarks to track the progress of ESF #14. Providing community support for recovery may take many forms including written planning documents and technical assistance however it is important to note during the entire operation coordination is a critical element and should be included throughout the management strategy. In addition, the Strategy provides the overall framework for operations and objectives for the short term accomplishments of the planning process and the long-term results which the process will yield.

• ESF #14 Field Operations Guide (FOG)

• The ESF #14 Field Operations Guide (FOG) focuses on the procedures and processes to conduct LTCR community assessments; LTCR planning, citizen participation, and recovery value project ratings; and LTCR implementation support activities. This document also describes the collaboration model used with State and local officials, details coordination requirements to support each function, and defines a performance measurement system based on stated goals, strategic objectives, and service outcomes.

• ESF #14 Annex

• The ESF #14 Annex to the National Response Plan which provides a brief snapshot of the ESF including purpose, scope, policies, concept of operations, organization, actions, and responsibilities;


Appendix B

ACRONYMS

ARC American Red Cross CBO Community-Based Organization DFO Disaster Field Office DHHS Department of Health and Human Services DHS Department of Homeland Security DOC Department of Commerce DOD Department of Defense DOE Department of Energy DOI Department of the Interior DOL Department of Labor DOT Department of Transportation DRC Disaster Recovery Center EDA Economic Development Administration EEI Essential Element of Information EPA Environmental Protection Agency ESF Emergency Support Function ESFLG Emergency Support Function Leaders Group FCO Federal Coordinating Officer FEMA Federal Emergency Management Agency FRC Federal Resource Coordinator GAR Governor’s Authorized Representative


GIS Geographical Information System HUD Department of Housing and Urban Development HHS Department of Health and Human Services HQ Headquarters HSPD Homeland Security Presidential Directive IAIP Information Analysis and Infrastructure Protection ICS Incident Command System IAC Incident Advisory Council IAP Incident Action Plan IST Incident Support Team JFO Joint Field Office JIC Joint Information Center LTCR Long-Term Community Recovery LTR Long-Term Recovery MOA Memorandum of Agreement MOU Memorandum of Understanding NGO Nongovernmental Organization NICC National Infrastructure Coordination Center NIMS National Incident Management System NOAA National Oceanic and Atmospheric Administration NOC National Operations Center NRCC National Response Coordination Center NRP National Response Plan


NVOAD National Voluntary Organizations Active in Disaster PFO Principal Federal Official POC Point of Contact RFI Requests for Information RISC Regional Interagency Steering Committee RRCC Regional Response Coordination Center SBA Small Business Administration SCO State Coordinating Officer SME Subject Matter Expert SOP Standard Operating Procedure TVA Tennessee Valley Authority USACE U.S. Army Corps of Engineers USDA U.S. Department of Agriculture


Appendix C

GLOSSARY

Activation. The initial process of ESF #14 activity in response to a presidentially declared disaster. Activation refers to the mobilization of resources to the NRCC and the field. Agency Representative. A person assigned by a primary, assisting, or cooperating Federal, State, local, or tribal government agency or private entity that has been delegated authority to make decisions affecting that agency’s or organization’s participation in incident management activities following appropriate consultation with the leadership of that agency. Awareness. The continual process of collecting, analyzing, and disseminating intelligence, information, and knowledge to allow organizations and individuals to anticipate requirements and to react effectively. Catastrophic Incident. Any natural or manmade incident, including terrorism that results in extraordinary levels of mass casualties, damage, or disruption severely affecting the population, infrastructure, environment, economy, national morale, and/or government functions. A catastrophic event could result in sustained national impacts over a prolonged period of time; almost immediately exceeds resources normally available to State, local, tribal, and private-sector authorities in the impacted area; and significantly interrupts governmental operations and emergency services to such an extent that national security could be threatened. All catastrophic events are Incidents of National Significance. Common Operating Picture (COP). A broad view of the overall situation as reflected by situation reports, aerial photography, and other information or intelligence.

Community. An incorporated city, town, township, borough, or village or an unincorporated area of a county or parish. Some states do have statutory authority that varies from this description.

Community Development Block Grant (CDBG). Administered by the Department of Housing and Urban Development (HUD); CDBGs are intended to develop viable urban communities by providing decent housing and a suitable living environment and by expanding economic opportunities, principally for low to moderate-income people. Disaster-related assistance can be eligible under this program depending on State priorities; mitigation activities have been funded under this program. Community Recovery. In the context of the NRP and its annexes, the process of assessing the effects of an Incident of National Significance, defining resources, and developing and implementing a course of action to restore and revitalize the socioeconomic and physical structure of a community.


Critical Infrastructures. Systems and assets, whether physical or virtual, so vital to the United States that the incapacity or destruction of such systems and assets would have a debilitating impact on security, national economic security, national public health or safety, or any combination of those matters. Cultural Resources. Cultural resources include historic and prehistoric structures, archeological sites, cultural landscapes, and museum collections. Deputy. A fully qualified individual who, in the absence of a superior, could be delegated the authority to manage a functional operation or perform a specific task. In some cases, a deputy could act as relief for a superior and therefore must be fully qualified in the position. Deputies can be assigned to the Incident Commander, General Staff, and Branch Directors. Disaster Declaration. A disaster declaration is a Presidential determination that a jurisdiction of the United States may receive Federal aid as a result of damages from a major disaster or emergency. Disaster Housing. Disaster Housing (formerly called Temporary Housing) is temporary housing supplied by emergency management officials to disaster victims whose homes are no longer inhabitable due to damages sustained in a declared disaster. Disaster Recovery Center (DRC). The DRC is a location within or near the disaster site, at which disaster assistance clients can obtain information about assistance programs and check on the status of their teleregistration for assistance. Disaster Recovery Manager (DRM). The DRM is the FEMA officially (normally the FCO) who has the delegated authority from the Regional Director to manage authorities under the Stafford Act, including incurring financial obligations. Economic Development Administration (EDA). The EDA, part of the Department of Commerce, is the Federal agency that assists communities with grants and technical assistance for economic development. Emergency. As defined by the Stafford Act, an emergency is “any occasion or instance for which, in the determination of the President, Federal assistance is needed to supplement State and local efforts and capabilities to save lives and to protect property and public health and safety, or to lessen or avert the threat of a catastrophe in any part of the United States. Emergency Support Function (ESF). A grouping of government and certain private-sector capabilities into an organizational structure to provide the support, resources, program implementation, and services that are most likely to be needed to save lives, protect property and the environment, restore essential services and critical infrastructure, and help victims and communities return to normal, when feasible, following domestic incidents. The ESFs serve as the primary operational-level mechanism to provide assistance to State, local, and tribal governments or to Federal departments and agencies conducting missions of primary Federal responsibility.


Environment. Natural and cultural resources and historic properties as those terms are defined in this glossary and in relevant laws. Federal Coordinating Officer (FCO). The Federal officer who is appointed to manage Federal resource support activities related to Stafford Act disasters and emergencies. The FCO is responsible for coordinating the timely delivery of Federal disaster assistance resources and programs to the affected State and local governments, individual victims, and the private sector.

Federal Resource Coordinator (FRC). The Federal official appointed to manage Federal resource support activities related to non-Stafford Act incidents. The FRC is responsible for coordinating support from other Federal departments and agencies using interagency agreements and MOUs. FEMA-State Agreement. A FEMA-State Agreement is a binding statement of the understandings, commitments, assurances, and conditions under which FEMA disaster assistance shall be provided to states. This Agreement imposed binding obligations on FEMA, States, and their local governments in the form of conditions for assistance, which are legally enforceable. Flood Mitigation Assistance (FMA) Program. The FMA Program provides competitive grant funding for states and local governments that are planning or taking action to reduce or eliminate the long-term risk of flood damage to buildings, manufactured homes, and other insured structures. Grants may be awarded for planning assistance, implementation of mitigation strategies, and technical assistance. Geographic Information System (GIS). Computer software that links geographic information (where things are) with descriptive information (what things are like). A wide array of data associated with a geographic area can be displayed on maps and different categories of data (“layers”) can be overlain. For example, a GIS can take the map of a town and overlay the location of streets, the 100-year floodplain, landslides, and seismic faults to find out areas susceptible to multiple hazards.

Hazard Mitigation. Any cost-effective measure which will reduce the potential for damage to a facility from a disaster event. Hazard Mitigation Grant Program. Authorized under Section 404 of the Stafford Act, this program provides funding for cost-effective hazard mitigation projects in conformance with the post-disaster mitigation plan required under Section 322 of DMA 2000. Section 404 authorizes the President to contribute up to 75 percent of the cost of mitigation measures that are determined to be cost effective and substantially reduce the risk of future damage or loss in States affected by a major disaster. The remaining 25 percent of the cost may be a combination of State, local, and other non-Federal contributions. Hazards United States (HAZUS). HAZUS is a PC-based GIS software that implements a standardized, nationally applicable earthquake loss estimation methodology (computer model). Flood and hurricane loss estimation models (HAZUS-MH) were released in fall 2003.


Historic Property. Any prehistoric or historic district, site, building, structure, or object included in or eligible for inclusion in the National Register of Historic Places, including artifacts, records, and remains which are related to such district, site, building, structure, or object. HOME Investment Partnerships Program. This program is sponsored by HUD and provides permanent housing for low income homeowners or renters in large cities and urban counties. Funds can be used for acquisition, new construction, and rehabilitation. Human Services (HS) (Formerly Individual Assistance, IA). HS, formerly known as IA, provides supplementary Federal assistance (under the Stafford Act (Section 408)) to individuals and families adversely affected by a major disaster or emergency. Incident Action Plan (IAP). An oral or written plan containing general objectives reflecting the overall strategy for managing an incident. It may include the identification of operational resources and assignments. It may also include attachments that provide direction and important information for management of the incident during one or more operational periods. Incident Advisory Council (IAC). The IAC is a tailored group of senior Federal interagency representatives that adjudicates matters that cannot be resolved by the NOC-NRCC and provides strategic advice to the Secretary of Homeland Security during an actual or potential incident requiring Federal coordination. Activated at the discretion of the Secretary of Homeland Security, or his representative, the core group of the IAC includes representatives from Federal departments and agencies, DHS components, and other organizations as required. Affected States may be represented on the IAC either through the DHS Office of State and Local Government Coordination (OSLGC) or, if needed, through a State liaison to the IAC.

Incident Command System (ICS). ICS is the model tool for command, control and coordination of a response. ICS provides a means to coordinate the efforts of individual agencies as they work toward the common goal of stabilizing the incident and protecting life, property and the environment. ICS uses principles that have been proven to improve efficiency and effectiveness in both business settings and emergency responses. Incident Support Team (IST). The ESF #14 Coordinator and Primary Agency Representatives assigned to an incident in the early stages of a disaster. Infrastructure. The manmade physical system, assets, projects, and structures, publicly and/or privately owned, that are used by or provide benefit to the public. Examples of infrastructure include utilities, bridges, levees, drinking water systems, electrical systems, communications systems, dams, sewage systems, and roads. Infrastructure Support (IS). IS (also known as Public Assistance, PA) is Federal financial assistance provided by FEMA under the Stafford Act (Section 406) to State and local governments or to eligible private non-profit organizations for disaster-related requirements.


Joint Field Office (JFO). A temporary Federal facility established locally to provide a central point for Federal, State, local, and tribal executives with responsibility for incident oversight, direction, and/or assistance to effectively coordinate protection, prevention, preparedness, response, and recovery actions. The JFO will combine the traditional functions of the Joint Operations Center, the FEMA Disaster Field Office, and the Joint Information Center within a single Federal facility.

Local Government. A county, municipality, city, town, township, local public authority, school district, special district, intrastate district, council of governments (regardless of whether the council of governments is incorporated as a nonprofit corporation under State law), regional or interstate government entity, or agency or instrumentality of a local government; an Indian tribe or authorized tribal organization, or, in Alaska, a Native Village or Alaska Regional Native Corporation; or a rural community; unincorporated town or village, or other public entity (As defined in section 2 (10) of the Homeland Security Act of 2002, Public Law 107-296, 116 Stat. 2135, et seq. (2002).) Long-Term Community Recovery (LTCR). In the context of the NRP and its annexes, the process of assessing the effects of an Incident of National Significance, defining resources, and developing and implementing a course of action to restore and revitalize the socioeconomic and physical structure of a community.

Major Disaster. As defined by the Stafford Act, any natural catastrophe (including any 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, or explosion, in any part of the United States, which in the determination of the President causes damage of sufficient severity and magnitude to warrant major disaster assistance under this act to supplement the efforts and available resources of States, local governments, and disaster relief organizations in alleviating the damage, loss, hardship, or suffering caused thereby.

Mission Assignment (MA). The vehicle used by DHS/EPR/FEMA to support Federal operations in a Stafford Act major disaster or emergency declaration. It orders immediate, short-term assistance when an applicable State or local government is overwhelmed by the event and lacks the capability to perform, or contract for, the necessary work.

Mitigation. Activities designed to reduce or eliminate risks to persons or property or to lessen the actual or potential effects or consequences of an incident. Mitigation measures may be implemented prior to, during, or after an incident. Mitigation measures are often developed in accordance with lessons learned from prior incidents. Mitigation involves ongoing actions to reduce exposure to, probability of, or potential loss from hazards. Measures may include zoning and building codes, floodplain buyouts, and analysis of hazard-related data to determine where it is safe to build or locate temporary facilities. Mitigation can include efforts to educate governments, businesses, and the public on measures they can take to reduce loss and injury. Multiagency Coordination Entity. Functions within a broader multiagency coordination system. It may establish priorities among incidents and associated resource allocations,


deconflict agency policies, and provide strategic guidance and direction to support incident management activities. National Incident Management System (NIMS). A system mandated by NSPD-5 that provides a consistent, nationwide approach for Federal, State, local, and tribal governments; the private sector; and NGOs to work effectively and efficiently together to prepare for, respond to, and recover from domestic incidents, regardless of cause, size, or complexity. To provide for interoperability and compatibility among Federal, State, local, and tribal capabilities, the NIMS includes a core set of concepts, principles, and terminology. National Infrastructure Coordination Center (NOC-NICC). The NOC-NICC monitors the Nation’s critical infrastructure and key resources (CI/KR) on an ongoing basis. During an incident, the NOC-NICC provides a coordinating forum to share information across infrastructure and key resources sectors through appropriate information-sharing entities such as the Information Sharing & Analysis Centers and the Sector Coordinating Councils. To foster information sharing and coordination, private sector representatives from the CI/KR may provide information to the NOC-NICC. National Operations Center (NOC). Linking key headquarters components, including the former Homeland Security Operations Center (HSOC), the NOC is comprised of five sub-elements: Interagency Watch, National Response Coordination Center, Information and Analysis Component, National Infrastructure Coordination Center, and Operational Planning Element. National Response Coordination Center (NOC-NRCC). The NOC-NRCC monitors potential or developing incidents and supports the efforts of regional and field components, including coordinating the preparedness of national-level emergency response teams and resources; in coordination with Regional Response Coordination Centers (RRCCs), initiating mission assignments or reimbursable agreements to activate other Federal departments and agencies; and activating and deploying national-level specialized teams. In addition, the NOC-NRCC resolves Federal resource support conflicts and other implementation issues forwarded by the JFO. Those issues that cannot be resolved by the NOC-NRCC are referred to the IAC. During an incident, the NOC-NRCC operates on a 24/7 basis or as required in coordination with other elements of the NOC. Nongovernmental Organization (NGO). A nonprofit entity that is based on interests of its members, individuals, or institutions and that is not created by a government, but may work cooperatively with government. Such organizations serve a public purpose, not a private benefit. Examples of NGOs include faith-based charity organizations and the American Red Cross. Preliminary Damage Assessment (PDA). The PDA is the basis for a State’s request for a Presidential disaster declaration. It is a joint FEMA/State verification of actual damages and an estimate of additional resources that will be needed because of a disaster. Preparedness. The range of deliberate, critical tasks and activities necessary to build, sustain, and improve the operational capability to prevent, protect against, respond to, and recover from domestic incidents. Preparedness is a continuous process involving efforts at all levels of


government and between government and private-sector and nongovernmental organizations to identify threats, determine vulnerabilities, and identify required resources.

Principal Federal Official (PFO). The Federal official designated by the Secretary of Homeland Security to act as his/her representative locally to oversee, coordinate, and execute the Secretary’s incident management responsibilities under HSPD-5 for Incidents of National Significance.

Private Sector. Organizations and entities that are not part of any governmental structure. Includes for-profit and not-for-profit organizations, formal and informal structures, commerce and industry, private emergency response organizations, and private voluntary organizations (PVOs).

Public Assistance Program. The program administered by FEMA that provides supplemental Federal disaster grant assistance for debris removal and disposal, emergency protective measures, and the repair, replacement, or restoration of disaster-damaged publicly owned facilities and the facilities of certain private nonprofit organizations.

Recovery. The development, coordination, and execution of service- and site-restoration plans for impacted communities and the reconstitution of governmental operations and services through individual, private-sector, nongovernmental, and public assistance programs that: identify needs and define resources; provide housing and promote restoration; address long-term care and treatment of affected persons; implement additional measures for community restoration; incorporate mitigation measures and techniques, as feasible; evaluate the incident to identify lessons learned; and develop initiatives to mitigate the effects of future incidents. Regional Response Coordination Center (RRCC). The RRCC is a standing facility operated by DHS/FEMA that coordinates regional response efforts, establishes Federal priorities, and implements local Federal program support until a JFO is established in the field and/or other key DHS incident management officials can assume their NRP coordination responsibilities. The RRCC establishes communications with the affected State Emergency Operations Center (EOC) and the NOC-NRCC, coordinates deployment of the Emergency Response Team–Advance Element (ERT-A) to field locations, assesses damage information, develops situation reports, and issues initial mission assignments. Situation Assessment. The evaluation and interpretation of information gathered from a variety of sources (including weather information and forecasts, computerized models, GIS data mapping, remote sensing sources, ground surveys, etc.) that, when communicated to emergency managers and decision makers, can provide a basis for incident management decision-making. Situation Report (SITREP). Daily or weekly summaries of the disaster situation, status of operations, and identification of future priorities for response and recovery operations. Stafford Act. The Robert T. Stafford Disaster Relief and Emergency Assistance Act, PL 100-107 was signed into law November 23, 1988 and amended the Disaster Relief Act of 1974, PL 93-288. The Stafford Act is the statutory authority for most Federal disaster response activities,


especially as they pertain to FEMA and its programs. The Stafford Act was most recently amended to further strengthen hazard mitigation planning requirements by DMA 2000. State. Any State of the United States, the District of Columbia, the Commonwealth of Puerto Rico, the U.S. Virgin Islands, Guam, American Samoa, the Commonwealth of the Northern Mariana Islands, and any possession of the United States. State Coordinating Officer (SCO). The SCO is appointed by the Governor to act in cooperation with the FCO. State ESF #14 Coordinator. This position is designated by the State to coordinate State plans and resources available to support long-term community recovery in close collaboration with Federal agencies; regional, local, and tribal partners; and the private sector, including NGOs. Strategic. Strategic elements of incident management are characterized by continuous, long-term, high-level planning by organizations headed by elected or other senior officials. These elements involve the adoption of long-range goals and objectives, the setting of priorities, the establishment of budgets and other fiscal decisions, policy development, and the application of measures of performance or effectiveness. Strategic Plan. A plan that addresses long-term issues such as impact of weather forecasts, time-phased resource requirements, and problems such as permanent housing for displaced disaster victims, environmental pollution, and infrastructure restoration. Subject-Matter Expert (SME). An individual who is a technical expert in a specific area or in performing a specialized job, task, or skill. Sustainability/Sustainable Development. Sustainable development maintains or enhances economic opportunity and community well-being while respecting, protecting and restoring the natural environment upon which people and economies depend. It serves the present population without diminishing the prospects of future generations. Disaster resistance should be considered an important element of sustainability. Sustainable Redevelopment. Sustainable redevelopment incorporates the concepts and practices of sustainable development into the disaster recovery process. Unified Command. An application of ICS used when there is more than one agency with incident jurisdiction or when incidents cross political jurisdictions. Agencies work together through the designated members of the Unified Command to establish their designated Incident Commanders at a single Incident Command Post and to establish a common set of objectives and strategies and a single Incident Action Plan. Voluntary Agency (VOLAG). A VOLAG is any chartered or otherwise duly recognized tax-exempt local, State, or national organization or group that provides needed services to the States, local government, or individuals in coping with a disaster.


Appendix D INSERT CHART FROM ESF #14 NRP

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