Community-Based Pre-Disaster 
Mitigation 
for Emergency Managers

Student Manual


FEMA

Community-Based Pre-Disaster Mitigation
 for Emergency Managers
 Student Guide
 Table of Contents
 
Introductory Workshop 
 Introduction to Partnerships in Pre-Disaster Mitigation  A Caveat on 
Community-based Mitigation Programs  Mitigation vs. Preparedness and 
Why Pre-Disaster Mitigation is Important  Importance of CBO/FBO 
involvement with Emergency Management in 
Community Pre-Disaster Mitigation Activities


Section 1: Identifying Community-Based Organization (CBO) and/or 
Faith Based Organization (FBO) Pre-Disaster Mitigation 
Volunteers 
 Introduction to Partnerships in Pre-Disaster Mitigation  Section 1.A: 
Understanding our Risk of Disaster  Section 1.B: Can we Help Make our 
Community Safer?  Section 1.C: Establishing Mitigation Partnerships 
between Emergency 
Managers and CBOs/FBOs


Section 2: Setting Up for Success in Community-Based Mitigation 
 Section 2.A: Checking out the Local Mitigation Scene 
 Section 2.B: Effectively Identifying and Recruiting Emergency 

Management Volunteers  Section 2.C: Identifying and Recruiting 
Volunteers from CBOs and FBOs  Section 2.D.: Setting up an 
Organizational Workshop  Section 2.E.: Expanding the Network


Section 3: Program and Project Development 
 Section 3.A: How to Be a Mentor 
 Section 3.B: Thinking Creatively about Resources 
 Section 3.C: Creating No-cost and Low-cost Projects 


Section 4: Media/Publicity/Recognition 
 Section 4.A: Publicizing your Program and Activities 
 Section 4.B: Recognizing Volunteers and Partners 

Section 5: Identifying and Implementing Projects within Your Program 
Section 6: Learning from Our Experiences 
Section 7: Sustainability: Keeping Volunteers Engaged 
Section 8: Examples of Success 
 Section 8.A.: Examples of Successful CBO/FBO Integration in Local Pre-
disaster Mitigation 
 Section 8.B.: Mitigation Challenges 
 Section 8.C.: Best Practices 

Acknowledgements 
Resource Guide 
COMMUNITY-BASED PRE-DISASTER MITIGATION FOR 
EMERGENCY MANAGERS


STUDENT GUIDE 
THESE MATERIALS WERE PREP ARED THROUGH A CONTRACT FROM THE FEDERAL 
EMERGENCY MANAGEMENT AGENCY (FEMA), THE EMERGENCY PREP AREDNESS 
AND RESPONSE DIRECTORATE OF THE DEP ARTMENT OF HOMELAND SECURITY 
(DHS). THE MATERIALS ARE BASED ON THE EXPERIENCE AND COUNSEL OF 
COMMUNITIES, F AITH-BASED ORGANIZATIONS, AND EMERGENCY MANAGERS FROM 
AROUND THE COUNTR Y. 
notes:



Introductory Workshop 
Introduction to Partnerships in Pre-Disaster Mitigation 
When it comes to disaster, emergency managers and community-based and faith-based 
organizations (CBOs and FBOs) have long operated within certain traditional roles. Emergency 
managers typically are focused on emergency operations and technical solutions. They are 
burdened with too much to do and too few resources. In many cases, emergency managers 
have their hands full maintaining a decent state of preparedness and responding when disaster 
occurs. They generally work with volunteers in well-defined circumstances during and after 
disasters. 
CBOs and FBOs are accustomed to deploying volunteers and services in disaster relief and 
recovery. Food, shelter, blankets, the organization of volunteer resources, and the provision 
of human warmth and comfort are their areas of expertise. 
There is a growing trend around the country for emergency managers to cooperate with CBOs 
and FBOs in a different kind of partnership. Community-based mitigation programs 
concentrate on ongoing efforts that can lessen the impact disasters have on people and 
property. These programs capitalize on the distinct and separate strengths that emergency 
managers and CBOs/FBOs offer. 
Emergency managers provide access to: 
.  Funding available through government mitigation grant programs
.  Government-based expertise and technical know-how
.  Deep understanding of local risks and mitigation needs
.  Current status of mitigation within the community
.  Access to government expertise and resources at the local, state, regional and federal 
level

CBOs and FBOs offer: 
.  Immense volunteer capacity
.  Understanding of community needs and awareness of the most vulnerable 
populations
.  Built-in credibility with the community
.  Access to social and population groups that may avoid interaction with government 
officials
.  The power of persuasion and community influence
.  The ability to make decisions outside of government processes

The benefits of emergency management and CBO/FBO partnerships are enormous. They 
include the following: 
.  Emergency management and CBO/FBO partnerships support the reduction of 
disaster risk, even in highly resource-constrained situations. 
.  Mitigation activities can keep experienced volunteers active and enthusiastic even in 
times when their special disaster response and recovery skills are not needed. 
.  Opportunities exist to bring a whole new group of volunteers into play. 
.  Program activities maintain community interest and increase awareness regarding 
disaster risk reduction and preparedness. 
.  Community members acquire a sense of empowerment through reducing their 
disaster risk. They buy in at the grassroots level. 
.  The partnerships and relationships built through such programs further strengthen 
community bonds.
.  When disaster does strike, response and recovery efforts are likely to proceed more 
smoothly because people know each other, damage and loss are reduced due to mitigation 
activities, and citizens are apt to be more prepared as a result of their increased disaster 
consciousness. 

Both emergency managers and CBOs/FBOs will be challenged by cultural and 
organizational differences when they step beyond traditional roles to form these new 
partnerships. Leadership and operational styles may vary widely. The mission of each group 
will vary distinctly, both within the CBO and FBO community, and between emergency 
managers and CBOs/FBOs. For example, emergency managers generally operate within a 
command-and-control, fairly hierarchical decision-making and leadership framework. On the 
other hand, CBOs and FBOs are likely to have decision processes that are less structured and 
potentially more consensus-based. For any partnership to succeed, it is important for each 
group to understand the cultural values and viewpoints of their partners, and to honor and 
respect them. 
A Caveat on Community-Based Mitigation Programs 
If your community chooses to either establish a community-based mitigation program - or to 
enhance an existing partnership between emergency managers and CBOs/FBOs - it's critical 
that CBOs/FBOs understand the importance of ongoing coordination and consistent 
communication with emergency managers. 
Because emergency managers are charged formally with the task of community disaster 
preparedness, response, and mitigation, volunteer efforts must dovetail with the official plans 
either in place or underway. Volunteer support should be viewed as the asset it is. Emergency 
managers need to stay in the loop to forestall misunderstandings or even a situation in which 
volunteer activities impede progress. 
CBO and FBO volunteers can achieve optimum results when working in partnership with 
emergency managers and in accordance with official Community Mitigation Plans. By 
coordinating with the local emergency manager, volunteers will be able to join any pre-
existing mitigation committee. 
Mitigation vs. Preparedness and Why Pre-Disaster Mitigation is Important 
Many experts in the emergency management debate the differences between mitigation 
and preparedness. However, for the purposes of this workshop and to help emergency 
managers better understand how to work with CBOs and FBOs, mitigation is defined as 
ongoing efforts that can lessen the impact disasters have on people and property. There is a 
distinction between community preparedness and mitigation activities. Community disaster 
preparedness gets people and communities ready for a disaster that almost certainly will 
occur. 
Examples of preparedness activities include: 
.  Knowing how to drop, cover, and hold on when an earthquake happens 
.  Warning sirens 
.  Emergency communication systems
.  NOAA weather radios
.  Evacuation plans
.  Emergency supplies kit
.  Sandbags
.  Smoke alarms

On the other hand, disaster mitigation activities will actually prevent or reduce the 
impact of the hazard. Examples of mitigation activities are: 
.  Installing hurricane shutters
.  Strengthening roofs
.  Installing fire-resistant shingles
.  Installing shatter-resistant window film 
.  Anchoring outdoor items that can become projectiles in hurricanes and high winds
.  Implementing vegetation management - for example, removing fire-prone dry plant 
material from gutters and around residences and other buildings, or trimming tree limbs that 
overhang roofs to avoid roof damage during hurricanes, tornadoes, or high straight-line winds 
.  Clearing streams
.  Adopting and enforcing stricter building codes
.  Installing hail-resistant shingles
.  Conducting a needs assessment - determining the level and type of mitigation needs 
present in the community; for example, identifying clogged drainageways and streams that 
could cause flooding during periods of high rainfall; can include specific details on the number 
of areas that need clearing and a prioritization of which areas need to be cleared first based on 
the severity of the problems that could result if the stream or drainageway remains uncleared 
.  Bolting bookshelves to walls
.  Installing backflow valves - special valves that prevent toilet overflows when the 
household sewer system is infiltrated with floodwater 
.  Developing mitigation plans - specific plans for mitigation activities to address one or 
more hazards faced by a community 
.  Building safe rooms - specially designed rooms built to withstand high winds 
generally associated with tornadoes; these are available in modular, pre-built form or are built 
using specified materials to pre-engineering specifications 

Importance of CBO/FBO Involvement with Emergency Management in 
Community Pre-Disaster Mitigation Activities 
Large Group Brainstorming (suggested time 25 minutes): 
1. 1. What are the elements of your community that you value most?
2. 2. What potential hazards or disasters most concern you?
3. 3. What existing CBOs and FBOs are active in your community? Who are their 
members? What do they accomplish? What resources do they offer? 


Opportunities Identification Brainstorm (Small Group) (25 minutes): 
1. 1. What opportunities exist to improve or expand upon hazard mitigation in our 
community?
2. 2. Where have we seen the greatest benefits in our community from previous 
mitigation activities? 
3. 3. What geographical areas, facility types, or population groups are most in need of 
mitigation assistance? 

notes:



Section 1: Identifying Community-Based Organization (CBO) and/or 
Faith-Based Organization (FBO) Pre-Disaster Mitigation Volunteers 
Introduction to Partnerships in Pre-Disaster Mitigation 
When it comes to disaster, emergency managers and community-based and faith-based 
organizations (CBOs and FBOs) have long operated within certain traditional roles. Emergency 
managers are typically focused on emergency operations and technical solutions. They are 
burdened with too much to do and too few resources. In many cases, emergency managers 
have their hands full maintaining a decent state of preparedness and responding when disaster 
occurs. They generally work with volunteers in well-defined circumstances during and after 
disasters. 
CBOs and FBOs are accustomed to deploying volunteers and services in disaster relief and 
recovery. Food, shelter, blankets, the organization of volunteer resources, and the provision 
of human warmth and comfort are their areas of expertise. 
There is a growing trend around the country for emergency managers to cooperate with CBOs 
and FBOs in a different kind of partnership. Community-based mitigation programs 
concentrate on ongoing efforts that can lessen the impact disasters have on people and 
property. These programs capitalize on the distinct and separate strengths that emergency 
managers and CBOs/FBOs offer. 
Emergency managers provide access to: 
.  Funding available through government mitigation grant programs
.  Government-based expertise and technical know-how
.  Deep understanding of local risks and mitigation needs
.  Current status of mitigation within the community
.  Access to government expertise and resrouces at the local, state, regional and federal 
levels

CBOs and FBOs offer: 
.  Immense volunteer capacity
.  Understanding of community needs and awareness of the most vulnerable 
populations
.  Built-in credibility with the community
.  Access to social and population groups that may avoid interaction with government 
officials
.  The power of persuasion and community influence
.  The ability to make decisions outside of government processes

The benefits of emergency management and CBO/FBO partnerships are enormous. They 
include the following: 
.  Emergency management and CBO/FBO partnerships support the reduction of 
disaster risk, even in highly resource-constrained situations. 
.  Mitigation activities can keep experienced volunteers active and enthusiastic even in 
times when their special disaster response and recovery skills are not needed. 
.  Opportunities exist to bring a whole new group of volunteers into play. 
.  Program activities maintain community interest and increase awareness regarding 
disaster risk reduction and preparedness. 
.  Community members acquire a sense of empowerment through reducing their 
disaster risk. They buy in at the grassroots level. 
.  The partnerships and relationships built through such programs further strengthen 
community bonds.
.  When disaster does strike, response and recovery efforts are likely to proceed more 
smoothly because people know each other, damage and loss are reduced due to mitigation 
activities, and citizens are apt to be more prepared as a result of their increased disaster 
consciousness. 

Both emergency managers and CBOs/FBOs will be challenged by cultural and organizational 
differences when they step beyond traditional roles to form these new partnerships. Leadership 
and operational styles may vary widely. The mission of each group will vary distinctly, both 
within the CBO and FBO community, and between emergency managers and CBOs/FBOs. 
For example, emergency managers generally operate within a command-and-control, fairly 
hierarchical decision-making and leadership framework. On the other hand, CBOs and FBOs 
are likely to have decision processes that are less structured and potentially more consensus-
based. For any partnership to succeed, it is important for each group to understand the cultural 
values and viewpoints of their partners, and to honor and respect them. 
A Caveat on Community-Based Mitigation Programs 
If your community chooses to either establish a community-based mitigation program - or to 
enhance an existing partnership between emergency managers and CBOs/FBOs - it's critical 
that CBOs/FBOs understand the importance of ongoing coordination and consistent 
communication with emergency managers. 
Because emergency managers are charged formally with the task of community disaster 
preparedness, response, and mitigation, volunteer efforts must dovetail with the official plans 
either in place or underway. Volunteer support should be viewed as the asset it is. Emergency 
managers need to stay in the loop to forestall misunderstandings or even a situation in which 
volunteer activities impede progress. 
CBO and FBO volunteers can achieve optimum results when working in partnership with 
emergency managers and in accordance with official Community Mitigation Plans. By 
coordinating with the local emergency manager, volunteers will be able to join any pre-
existing mitigation committee. 
Section 1.A: Understanding our Risk of Disaster 
1. 1. Brainstorm how capable we are as a community of either eliminating or reducing 
our risk from the natural hazards we face? 
2. 2. Who is most vulnerable to disaster in our community?

Section 1.B: Can We Help Make our Community Safer? 
1. Mitigation is one of the ways we can reduce our disaster risk. Mitigation 
Brainstorm: What is mitigation and how can we describe it so that 
CBO/FBO volunteers understand? Why should we mitigate? 
Mitigation is defined as ongoing efforts that can lessen the impact disasters have on 
people and property. There is a distinction between community preparedness and 
mitigation activities. Community 
disaster preparedness gets people and communities ready for a disaster that almost certainly 
will occur. 
Examples of preparedness activities include: 
.  Knowing how to drop, cover, and hold on when an earthquake happens 
.  Warning sirens 
.  Emergency communication systems
.  NOAA weather radios
.  Evacuation plans
.  Emergency supplies kit
.  Sandbags
.  Smoke alarms

On the other hand, disaster mitigation activities will actually prevent or reduce the 
impact of the hazard. Examples of mitigation activities are: 
.  Installing hurricane shutters
.  Strengthening roofs
.  Installing fire-resistant shingles
.  Installing shatter-resistant window film 
.  Anchoring outdoor items that can become projectiles in hurricanes and high winds
.  Implementing vegetation management - for example, removing fire-prone dry plant 
material from gutters and around residences and other buildings, or trimming tree limbs that 
overhang roofs to avoid roof damage during hurricanes, tornadoes, or high straight-line winds 
.  Clearing streams
.  Adopting and enforcing stricter building codes
.  Installing hail-resistant shingles
.  Conducting a needs assessment - determining the level and type of mitigation needs 
present in the community; for example, identifying clogged drainageways and streams that 
could cause flooding during periods of high rainfall; can include specific details on the number 
of areas that need clearing and a prioritization of which areas need to be cleared first based on 
the severity of the problems that could result if the stream or drainageway remains uncleared 
.  Bolting bookshelves to walls
.  Installing backflow valves - special valves that prevent toilet overflows when the 
household sewer system is infiltrated with floodwater 
.  Developing mitigation plans - specific plans for mitigation activities to address one or 
more hazards faced by a community 
.  Building safe rooms - specially designed rooms built to withstand high winds 
generally associated with tornadoes; these are available in modular, pre-built form or are built 
using specified materials to pre-engineering specifications 

2. How does mitigation get done?
 The role CBOs and FBOs can play in mitigation
Section 1.C: Establishing Mitigation Partnerships Between Emergency Managers and 
CBOs/FBOs 
1. 1. Communities like ours have been able to create beneficial mitigation partnerships. 
Use the case studies provided here to stimulate discussion. Additional resources are available 
in the Resource Guide and through the FEMA library. 
2. 2. As emergency managers, brainstorm how we could work with CBO/FBO volunteers 
to reduce our risks? Do CBO/FBO volunteers have special skills or networks that could help 
make our mitigation programs more e effective? 
3. 3. Are we interested in pursuing a community-based mitigation program? 
4. 4. Do we know others in the field of emergency management who would like to 
participate?

notes:


Section 2: Setting Up for Success in Community-Based Mitigation

Section 2.A: Checking out the Local Mitigation Scene 
 1. Brainstorm local mitigation activities involving CBO/FBO volunteers
  If community-based mitigation has been undertaken, learn about the activities, groups 
involved, and perceived successes and challenges. 
2. 2. Brainstorm local mitigation opportunities for volunteers 

Section 2.B: Effectively Identifying and Recruiting Emergency Management 
Volunteers 
 .1. Obtaining buy-in from your organization
 . How does your organization make decisions?
.  Can a committee form on its own and act?
.  Does a governing body or individual have to approve or endorse the effort?
.  What kind of decision process is required?
.  What kind of process would engage the most widespread support?
.  What actions must be taken for your organization to decide to participate in mitigation 
programs? 
 .2. Identifying and recruiting volunteers from your organization
.  Creating a list of emergency manager volunteer candidates
 . Developing an action plan for recruiting volunteers
.  How will volunteer candidates be contacted?
.  What kind of information will need to be shared during the initial contact?
.  Who will put the information together?
.  Who will contact specific individuals?
.  What will candidates be asked to do initially and in the future?
.  What's in it for the volunteers (why should they participate, and what are the benefits 
to participation)? 
.  What is the schedule?
.  Who in our group can spearhead the volunteer contact effort?

Section 2.C: Identifying and Recruiting Volunteers From CBOs and FBOs 
1. 1. Developing a CBO/FBO list
2. 2. Expanding the CBO/FBO list
 .3. Understanding CBOs/FBOs; Brainstorm the following:
.  What do we know about this group?
.  Does it have goals for community improvement or member safety?
.  Does it represent a particularly vulnerable population?
.  Is there a reasonable link between the group's mission and mitigation? 
.  What is the organization's culture? 
.  How does it make decisions?
.  What is the organization's role in the community - both outwardly perceived and self-
perceived? 
.  Would this group be interested in working with other organizations on community-
based mitigation? 
.  Who do we know that has personal or professional relationships with the leaders of 
this organization? Would they be willing to help us recruit? 

4. Developing an action plan for getting CBOs/FBOs involved
.  How will CBOs/FBOs be contacted?
.  What kind of information will need to be shared during the initial contact?
.  Who will put the information together?
.  Who will contact specific groups?
.  What will the groups be asked to do initially and in the future?
.  What's in it for the CBOs/FBOs (why should they participate, and what are the 
benefits to participation)? 
.  What is the schedule?
.  Who from our group can spearhead the CBO/FBO contact effort?

Section 2.D: Setting up an Organizational Workshop 
Design an initial organizational workshop. 
.  Who should be invited?
.  What is the optimum number of participants?
.  How should they be contacted and by whom?
.  How much background information on mitigation will need to be conveyed?
.  What other information will participants need to make a decision about getting 
involved in community-based mitigation programs? 
.  What instructional and other materials/equipment will be needed and how will we 
obtain them?
.  Where should the workshop be held?
.  Who should facilitate?
.  How long should the workshop last?
.  Where should the workshop be held?
.  What time of day would be best for the participant group?
.  What kinds of interactive exercises and group participation activities will help bring 
the group together and understand the key messages? 
.  What is the desired outcome?
.  What are the next steps after the organizational workshop?

Section 2.E: Expanding the Network 
Once our group is organized, how do we expand our network? Review Ideas for Expanding 
Your Mitigation Network. 
notes: 
Section 3: Program and Project Development

Section 3.A: How to Be a Mentor 
 .1. What is a mentor?
 .Discuss what mentoring is and what a mentor does. Refer to the mentoring resources in the 
Resource Guide for additional information. 
 .2. How can we benefit by mentoring a CBO/FBO?
 .Discuss the benefits of being a mentor to CBOs/FBOs as a means of carrying out community-
based mitigation programs. 
 .3. What qualities make an ideal mentor?Brainstorm the qualities that make a good mentor. 
Possible qualities include the following: 
.  Community-based mitigation experience
.  Mentoring experience
.  Familiarity with CBOs/FBOs and their missions
.  Availability and willingness to mentor 
2. 4. Given these qualities, who should the mentor be, and where should we look to find 
that person?Develop an action plan that includes identifying mentor candidates and the means 
of securing their assistance. 

Section 3.B: Thinking Creatively about Resources 
1. Identifying what kinds of resources are needed 
Brainstorm about resources needed for the mitigation program and activities. Consider the full 
range of needs, including the following: 
Financial 
.  Funding
.  Advice

 . In-kind donationsMaterials 
.  Equipment and tools, either donated or loaned
.  Specialized safety equipment (hard hats, vests)
.  Supplies (office supplies, water coolers, cups, refreshments, garbage bags, etc.)
.  Printing (signs, training materials, forms, flyers, posters, etc.)
.  Information (how-to, project ideas, training materials, etc.)
 . Participant and donor recognition (ball caps, T-shirts, key chains, other freebie items, 
plaques, etc.) Legal/Insurance 
 . Volunteer liability release forms 
 . Trained operators for specialized equipment People 
.  Volunteers 
.  Office and administrative support (answering phones, making copies, word 
processing, database development, mailing assistance, postage, etc.) 

Miscellaneous 
.  Transportation 
.  Facilities for meetings and activities
.  Technical support and volunteer training 
.  Other organizational and project specific needs

1. 2. Defining what our organization can provide
 .3. Identifying other sources of supportBrainstorm support that could be requested and obtained 
from other sources, including the following: 
.  FEMA and other Federal agencies
.  Volunteer organizations that specialize in disaster programs 
.  CBOs/FBOs - local, regional, national
.  Personal and professional networks
.  Local businesses
.  Trade associations and other similar groups 
.  Funding and grant sources (agencies, institutions, foundations, etc.)
.  Web sites and published resources 
.  Asset analysis; analyze what is existing within your organization - don't re-invent the 
wheel 
.  Economic development office
.  Planning office
.  Insurance agencies
.  Unions
.  Utilities
.  School districts
.  Transportation departments 
2. 4. Getting outside of the box
3. 5. Setting the wheels in motion - the action plan

List resources available through your organization. 
Refer to the Resource Guide for more ideas. 
Stretch and get creative. Come up with three "really out of the box" ideas for obtaining 
resources. 
Develop a plan for approaching other organizations to request assistance and resource support. 
Consider the following: 
.  Whom are we contacting?
.  What are we asking them for?
.  How will we contact them?
.  What will they need and want to know?
.  Who will put the information together?
.  Who will contact specific individuals?
.  What's in it for the donors (why should they help, and what are the benefits to 
participation?)? 
.  What is the schedule?
.  Who from our group can spearhead the effort?
.  How will we express our appreciation?
.  How will we keep track of what we've done?
.  Are the donations we're asking for tax-deductible?
.  What are the legal ramifications/obligations? 

Section 3.C: Creating No-cost and Low-cost Projects 
we do? 
Brainstorm projects that can be accomplished with little or no 
funding. Brainstorm activities that could be accomplished by 
volunteer forces. 
commitment but virtually no hard cash. 
notes: 
Section 4: Media/Publicity/Recognition

Section 4.A: Publicizing Your Program and Activities 
Media and public relations are an art that can take a professional years to master. However, 
these simple starter tips can help you navigate successfully in the communications realm. The 
benefit of this session can be enhanced by the participation of an expert in public relations. If 
possible, ask a local public relations practitioner to help teach this session. Possible sources of 
assistance include the public information officer from the city or another local, regional, or 
state agency; staff members from a local or nearby public relations or advertising agency; or 
public relations staff members from local corporations or institutions (school district, major 
companies, universities, etc.). 
It is important to acknowledge that the media can be an invaluable partner if used 
proactively. By orchestrating events and including the media at the initial stages, you can help 
keep mitigation on the public agenda and help citizens embrace mitigation as a public value. 
Some emergency managers may view the media in a negative light, based on past experiences 
or stereotype notions of who the media is. For example, work to form relationships with the 
media before a disaster strikes. Share the positive impacts of mitigation efforts, and let the 
media help you further the long-term strategic objective of building disaster-resistant 
communities. Or better yet, invite a member of the media to participate on a committee. 
1. Developing a publicity plan (note:these are starter tips only) 
Brainstorm publicity; address the following: 
.  What would we like to publicize?
.  Where would we like to see our efforts reported and recognized?
.  What do we want publicity to do for us? What are our long-term goals for publicity? 
(Example - Inform people of events, support recruitment, increase community awareness of 
mitigation, etc.) 
.  What types of media will work best for what we want to achieve? (Example - Radio 
works well for immediate news; magazines convey ideas in-depth; newspapers reach a big 
audience on a timely basis; etc.) 
.  Should we do our own publicity, or should we seek help? If we need help, where can 
we get it? 
.  Do we need training? If so, where can we get it?
.  Who will take responsibility for this activity? Do we need a committee?
.  Who should serve as our media spokesperson? Who will be the backup 
spokesperson?
.  What do we need to know about crisis communications? (Example: What will we tell 
the media if a volunteer gets hurt while working on a mitigation project?) 
.  Do we need to establish guidelines for what we say and how we interact with the 
media?
.  How to organize/write a publicity plan (see Resource Guide)
.  Do we know anyone who can help formulate a plan? 

2. Creating a media list
The best way to build a media list is to start with a good list that someone else has 
developed and used successfully. If possible, obtain a well-used, well-maintained 
media list from a local public relations expert. 
With the publicity goals in mind, develop a list of relevant media, or review the 
media list provided and select the appropriate contacts. 
Whether working with a donated list or developing your own, media to consider include 
the following: 
.  Newspapers (daily, weekly, shoppers, etc.) 
.  Local and regional magazines
.  Radio stations
.  Television stations (network, cable, closed-circuit systems) 
.  Web sites 
.  Newsletters and bulletins, both print and email (published by neighborhood 
associations, CBOs,FBOs, local businesses, local associations, schools, etc.) 
.  Community calendars and other calendars of events
.  Columns and special features (getting the home improvement editor to run a feature 
on disaster-proofing your home, 10 things everyone can do to make their homes more disaster-
resistant, etc.) 
.  Parent-Teacher Associations (PTA) 
.  List servs

A good media list is more than a list - it indicates a number of important facts about 
each media source. These facts include: 
.  Contact name, address, phone, fax, and email
.  Preferences - How do they want their news - by fax, in the mail, via email? If 
electronic, do they need a certain file type? What types of information are they interested in? 
Do they have any other requirements? 
.  Deadlines - If you want it to run, when do you have to get it to them?
.  Supporting graphics - Do they like photographs and illustrations? If so, what formats 
do they accept or require? 

4. Gaining attention for your news
There are a number of ways to increase media interest in your organization's news.
Brainstorm ways to make news attractive and attention-getting. Examples include:

.  Asking a prominent local official or community leader (mayor, fire chief,   police 
chief, city council member, Chamber of Commerce president, CBO/FBO leaders, etc.) to 
endorse the mitigation program and provide quotes for media coverage 
.  Piggybacking your activities and news with other, better-known community programs 
or events 
.  Combining forces with other organizations to issue joint news releases on similar 
activity. 
.  Meeting with the media prior to the event to give them background information
.  Inviting the media to your meeting

Section 4.B: Recognizing Volunteers and Partners 
It's very important to recognize everyone who supports your program. There are many ways to 
say thanks that cost little or nothing, and they all are appreciated. Recognition and thanks 
should be a continuous activity - it's crucial to building and sustaining momentum. 
Brainstorm ways to recognize volunteers and partners. Recognition will vary depending on 
personalities and preferences. Possibilities include: 
.  An annual volunteer and partner banquet or other special event
.  A picnic or other special conclusion to a volunteer activity
.  Distribution of small donated gifts such as ball caps
.  Formal recognition, such as plaques and certificates
.  Special awards for service "above and beyond"
.  Recognition from a prominent local official or community leader
.  Recognition from local, state, and Federal agencies
.  Handwritten thank you notes
.  Email thank you notes
.  A note to the volunteer's supervisor, thanking him/her for allowing the volunteer to 
participate

.  Who else can you use to say thanks?

notes: 
Section 5: Identifying and Implementing Projects Within Your 
Program

You can jumpstart your community mitigation program by selecting the right projects.The 
"right" projects are going to depend largely on your group's capacity, understanding, and skill 
set. In addition, the "right" project will address an identified risk for your area and help further 
long-term mitigation goals identified by local emergency managers. Starting small is often the 
best way to ensure success when engaging in community-based pre-disaster mitigation. 
Brainstorm mitigation projects that CBO/FBO volunteers can assist with. 
Refer to Small Steps to Big Success. 
notes: 
Section 6: Learning from Our Experiences

It's important to keep track of what we do and to learn from our experiences. Doing this can 
help us improve our program and its results. Brainstorm ways to document and assess 
programs and activities. Topics for discussion include the following items: 
  Documenting our activities and achievements - in words and pictures
 Documentation will not only help your group in the evaluation process, but it will 
facilitate smoother relationship with the media and make your projects easily accessible to 
other groups. 
.  Measuring success - how will we know we've succeeded?

There are a number of ways to measure success, but your group will determine the 
most important measures of success. Check your project/program's progress 
against these measures at designated intervals. 
Brainstorm what you feel will be important measures of success. 
 . Getting feedback - evaluation tools and techniques
 .structured form of feedback gathering. (See the Resource Guide).  
 . Debriefing - learning in the moments after a major activity
 .Sometimes the best feedback is available immediately after a project has taken place. For 
workshops, structure a short period of time at the end of your session to solicit feedback and 
allow participants to evaluate the session. For projects, try and schedule time for your group to 
meet immediately following the project for just 20 minutes or so. Discuss successes and 
challenges, lessons learned and any other feedback. Make sure there is a recorder for your 
group. 
 . Incorporating what we've learned into future efforts
 .Often times, challenges met are easily avoided in the future. Make sure that everyone in the 
group knows that successes and challenges are vital to the continued success of future projects. 
Consider a running "best practices" list for particular projects, workshops, or even 
demographic groups (i.e., When working at the senior home, volunteerism is more visible in 
the morning hours). 
.  Sharing what we've learned with others in our group and beyond (tell FEMA, local 
media, other communities- anyone who will listen!) 

The importance of spreading the word can not be emphasized enough. If you're 
proud of your group's achievements, others will be intrigued. Utilize the methods 
outlined in Section 4 to attract media, and use any other methods available to you to 
share your successes. FEMA's regional offices and mitigation staff are interested 
in your successes as well. The FEMA website will have the latest information on 
how to share your mitigation successes with others. 
 Utilizing the Internet to spread the word. 
The Internet has become a powerful information-sharing tool. Chances are that a 
member of your group has experience using the Internet either personally or for 
business. Solicit help in getting project and volunteer information online. If no 
member of your group is comfortable taking on this task, solicit help from a local 
web-development firm. 
The link between evaluation and sustainability is well documented. Programs and projects that 
are consistently evaluated are more likely to satisfy engaged volunteers and more likely to 
effectively serve your community. As programs and projects change over time, consistent 
evaluation allows your group to refine processes and procedures. Well-evaluated programs are 
often the longest lasting and most successful. It can also be valuable to ask participants to 
evaluate themselves or a particular project before and after the fact. A simple structure for 
self-assessment is available in the Resource Guide. If your group is planning on using this 
curriculum or a similar workshop structure, the following form can help you evaluate your 
effectiveness. 
Please take a moment to answer the following questions. Circle 
the response that best reflects your opinion. Return the form to 
the workshop


facilitator. 
1. The facilitator spoke with clarity and was easy 
to understand.
a) Very clear and understandable
b) Clear and understandable
c) Somewhat clear and understandable
d) Not clear

1. 2. The facilitator was knowledgeable about the subject.a) Very knowledgeable b) Knowledgeable 
c) Somewhat knowledgeable d) Had no clue.... 
2. 3. I understood the objectives of the workshop.a) Very clear b) Clear c) Somewhat clear d) Not sure 
what the workshop was about 
3. 4. Workshop objectives were accomplished. a) All accomplished b) Most accomplished c) A few 
were accomplished d) None were accomplished 
4. 5. The activities and discussions contributed to the

completion of the workshop objectives.
a) Major contributors
b) Added interest to the workshop
c) Somewhat useful
d) A waste of time

6. I felt the scheduled pace of the workshop was...a) Enough time b) A bit too quick c) Too much time d) I 
found my mind wandering.... 
7. I was given plenty of opportunity to express my opinion
in the group about the subject.
a) Strongly agree
b) Agree
c) Disagree
d) Strongly disagree

8. The group sessions had the right amount of participants 
and elicited participation from all workshop members. a) Size was perfect b) Size was too small c) Size 
was too big d) Didn't need group sessions 
9. The facility met the visual and auditory needs of 
the audience.
a) I could see and hear very well
b) I could see and hear
c) I couldn't see and hear all the time
d) I couldn't see and hear at all

1. 10. The training media (overheads, PowerPoint, posters,etc.) were clear and legible. a) Very 
clear and legible b) Clear and legible c) Blurry and somewhat small d) I couldn't make them out at all 
2. 11. Our community will benefit from the subject matter of this workshop. a) Great things will 
come from this b) It will benefit c) Somewhat benefit d) Not benefit at all 
3. 12. I will be able use the knowledge and skills I received in this workshop immediately. a) 
Yes b) No 

Please answer the following questions. If more space is needed, please use the back of 
this page. 
.  The best part of the workshop was:
.  The part of the workshop that could use improvement is:
.  Comments:6-3 

notes: 
Section 7: Sustainability: Keeping Volunteers Engaged

Maintaining momentum is important to the success of any effort. Why do volunteers do what 
they do? There's some reward for them, whether it's personal satisfaction in helping others, 
fun and fellowship, or a combination of many factors. 
Brainstorm ways to maintain volunteer commitment and involvement. 
Refer to Ideas to Keep Your Mitigation Program Moving. 
Many of the preceding suggestions rely on your group identifying common ground. Understand 
that groups will have different personalities, as will the individuals within your group. Try to 
identify the types of people you have in your group, as well as the leadership style that will be 
most effective in working with them. 
Here are some short overviews of typical leadership styles: 
Decision Processes: ORID 
The following materials were developed by:
Roundtable Associates Homepage, Roundtable Associates, accessed
May 2003, <http://www.roundtableassociates.com/orid.htm>

Some groups find the ORID method useful for digesting information and in helping to make 
decisions. ORID stands for Objective, Reflective, Interpretive, and Decisional. The acronym 
ORID refers to the order in which group members or an entire group can react to material or 
ideas. For example: 
Objective (What): 
What words or phrases do you remember from the presentation?
What are some key ideas or images in the presentation?
Reflective (Gut): 
Where were you surprised?
What was a high point of the presentation for you?
Interpretive (So What?): 
What were the presenters saying? What was it about?
What issues does this dialogue bring up for you?
What are some of the deeper questions we could explore?
Decisional (Now What?) 
What can we do here about these issues? What actions can we take?
What would be our first step?
For more information on ORID, see the Resource Guide.

Consensus Decision Making: Steps to Reaching Consensus 
The following materials were developed by:
Ball Foundation Consensus Tools, Ball Foundation, accessed May
2003, <http://www.ballfoundation.org/ei/tools/consensus.html>

Many small groups find it effective to work towards consensus. The 
consensus process allows the group to come to one decision with which 
everyone agrees. Following are some tips for reaching consensus and a 
quick tool to measure where your group stands. For more information, 
consult the Resource Guide. 
Purpose: To guide a team through the process of reaching consensus 
When to Use: Whenever making a consensus decision 
Whom to Involve: All team members 
First, review the meaning of consensus and the process of achieving consensus. Then agree 
on a targeted time period to reach consensus. 
1. 1. Identify Areas of Agreement
 .2. Clearly State Differences
.  State positions and perspectives as neutrally as possible.
.  Do not associate positions with people. The differences are between alternative valid 
solutions or ideas, not between people. 
.  Summarize concerns and list them.
 .3. Fully Explore Differences
.  Explore each perspective and clarify. 
.  Involve everyone in the discussion - avoid a one-on-one debate.
.  Look for the "third way." Make suggestions or modifications, or create a new 
solution. 
2. 4. Reach Closure
 .5. Articulate the Decision
.  Ask people if they feel they have had the opportunity to fully express their opinions.
.  Obtain a sense of the group. (Possible approaches include "go rounds" and "straw 
polls," or the Consensus Indicator tool. When using the Consensus Indicator, if people respond 
with two or less, then repeat steps one through three until you can take another poll.) 
.  At this point, poll each person, asking, "Do you agree with and will you support this 
decision?"

Tips for Consensus Building 
Do's 
.  Try to get underlying assumptions regarding the situation out into the open where they 
can be discussed. 
.  Listen and pay attention to what others have to say. This is the most distinguishing 
characteristic of successful teams. 
.  Encourage others, particularly the quieter ones, to offer their ideas. Remember, the 
team needs all the information it can get. 

 Take the time needed to reach the point where everyone can agree to support the 
group's decision. Don'ts 
.  Do not vote. Voting will split the team into "winners and losers" and encourage 
"either-or" thinking when there may be other ways. Voting will foster argument rather than 
rational discussion and consequently harm the team process. 
.  Do not make agreements too quickly or compromise too early in the process. Easy 
agreements are often based on erroneous assumptions that need to be challenged. 
.  Do not compete internally; either the team wins or no one wins.

Consensus Decision Making: Consensus Indicator 
Purpose: To give a team a way of gauging where team members stand on an issue 

When to Use: Whenever making a consensus decision

Whom to Involve: All team members

Time Needed: 1-5 minutes

Ask individuals to react to the proposal by raising the number of fingers that correspond to their 
position:

FIVE: I'm all for the idea. I can be a leader.
FOUR: I'm for the idea. I can provide support.
THREE: I'm not sure but I am willing to trust the group's opinion and will not sabotage its 
efforts.
TWO: I'm not sure. I need more discussion.
ONE: I can't support it at this time. I need more information.
ZERO (FIST): No. I need an alternative I can support.

The preceding resources are meant as a starting point. Every 
group will be different
and will change over time. For more information on group 
dynamics and leadership
styles, refer to the Resource Guide.

notes:


Section 8: Examples of Success 
Section 8.A: Examples of Successful CBO/FBO Integration in Local Pre-disaster 
Mitigation 
The following are examples of successful local pre-disaster mitigation projects. Note 
how integration of CBOs/FBOs was achieved in each case. 
Brainstorm to identify elements in the success stories that are relatively simple to 
emulate as ways to involve CBOs/FBOs in potential mitigation projects.

Section 8.B: Mitigation Challenges 
Discuss how best to overcome the following challenges to initiating or completing mitigation 
projects with emergency managers and CBO/FBO participants. 
Scenario 1 - Personal Agenda City 
In Personal Agenda City, community members are somewhat enthusiastic but also cautious 
about involvement in a disaster mitigation project. The reasons: 
.  Fragmentation and disagreements among local government leaders
.  Imminent closure of a local disaster recovery organization due to lack of funding
.  Personal agenda, presented by one of the local CBO leaders, that presents a barrier to 
the inclusivity needed for successful completion of the project 

Scenario 2 - Lack of Leadershipville 
In Lack of Leadershipville, interest in mitigation efforts is high. However, local 
CBOs/FBOs are confused regarding the difference between disaster mitigation and 
preparedness. Additionally, the local Emergency Manager has resigned and left a void 
in leadership. 
Scenario 3 - Lack of Funding, USA 
In the multi-ethnic city of Lack of Funding, community members initially display high levels 
of enthusiasm about mitigation initiatives. However, because of lack of funding and a high 
level of government and outsider distrust, no project moves forward. 
Section 8.C: Best Practices 
The following are practices and processes that have been found to be effective in 
integrating FBOs and CBOs into disaster mitigation programs across the country. These 
concepts and approaches are employed in communities that have successfully integrated 
CBOs and FBOs in grassroots disaster mitigation activities. Discuss how these apply in your 
community. 
1. 1.	Help individuals and CBO/FBO groups understand what role they might play in 
creating their own disaster-resistant environment, as well as how they can work with others to 
build a disaster-resistant community. Individuals appear to be more motivated and enthusiastic 
when the focus is on empowering them to take charge of their own safety and reduce their 
disaster risk. 
2. 2.	Identify and recruit at least one champion or "cheerleader" for the process of 
enrolling the FBOs and CBOs in working together to create disaster-resistant communities. 
These are people with "fire in the belly," whose enthusiasm is contagious, and who are able to 
rally excitement - both within and among groups. 
3. 3.	Educate groups and individuals on the importance of disaster mitigation and the 
benefits they and the community will see from working to reduce disaster risk. Clearly define 
and communicate how these benefits relate to each group's mission, purpose, and goals. 
4. 4.	Find simple ways to educate people about the main mission of the mitigation 
program, and develop a common understanding of vision and goals. Help them recognize the 
community's risks and opportunities to work together to mitigate risk. A shared vision helps 
individuals and groups overcome potential and actual differences. 
5. 5.	Involve the organizations in the mitigation planning process from the beginning, 
if possible, so they can be invested in the program and feel a sense of ownership in it. 
6. 6.	Take advantage of partnerships that naturally arise after a disaster. Nurture and 
build momentum after the urgency of the recovery effort is past. 
7. 7.	Take advantage of, and actively encourage the process of "satellite 
networking." Contact ambassadors from different groups, and obtain their support and 
involvement. Ask them to carry the excitement to their groups, and encourage their group 
members to carry it further, within the individual group, and within groups with which each 
person is involved. 
8. 8.	Work collaboratively and inclusively. Share ideas. Give everyone a chance to 
contribute and "buy in" to the overall goal. Invite everyone appropriate to the table. 
9. 9.	Be flexible in all ways possible - in thinking, planning, approach, and action. 
10. 10.	Be persistent, and keep a positive, "can-do" attitude. Brainstorm ways to 
overcome obstacles. If a project doesn't work out the way it was initially envisioned, find 
another way to make it work or to capture value from the work that was done. 
11. 11.	Keep information and approaches simple; get rid of "government-ese" and 
complicated language. Simplify, simplify, simplify. 
12. 12.	Maintain an ongoing list of projects and activities to sustain momentum and 
keep excitement alive. Make sure all groups and individuals are aware of this list, and how 
they could be supporting the various projects in which they are not already involved. 
13. 13.	Be generous in recognizing volunteers and donors. 
14. 14.	Adopt project ideas from other groups, agencies, and communities; most of 
them are glad to share what they have learned and what has worked for them. Keep a good 
idea going by replicating projects in different parts of the community and from group to group. 
15. 15.	Publicize successes to increase awareness and create a bandwagon effect. 
Use local media, neighborhood gatherings, and meetings of clubs, civic groups, and 
professional associations to create and maintain interest. Also, favorable publicity for groups 
and/or individuals can bolster their motivation to continue with the process. 
16. 16.	Recruit intermediary groups and/or individuals to network with potential 
partners reluctant to interface with official authorities. 
17. 17.	Create a structure that allows for autonomy so that individual FBO/CBO 
partners can conduct independent mitigation projects aimed at achieving the overall common 
goal. The goal is to centralize communication, rather than governance or control. 
18. 18.	Teach new skills that would be valuable in mitigation projects (e.g., amateur 
radio and emergency communication, safety retrofit skills, power tool use, etc.) 
19. 19.	Engage the entire community in mitigation through intergenerational and 
multidimensional projects that incorporate diverse groups, such as children, the elderly, the 
disabled, and groups that supply diversity in socioeconomic, racial, ethnic, and faith 
backgrounds. 
20. 20.	Demonstrate respect and sensitivity for each group's knowledge, perspective, 
cultural background, and internal governance structure (either formal or informal). 
21. 21.	Recognize and address language diversity. 
22. 22.	Identify a central point of contact for information exchange and referral. 
23. 23.	Be assertive in asking for support and resources; think "outside the box" 
regarding potential partners, volunteers, financial sources, and in-kind donors. 
24. 24.	Strive to cultivate input and buy-in from the bottom up. 
25. 25.	Emphasize public outreach, education, and other interaction so participants 
understand why and how they can be involved. 
26. 26.	Be able to articulate success of the program to the entire community. 
27. 27.	Foster work groups that will produce tangible results - not just studies or 
recommendations. 
28. 28.	Look at ways to obtain additional funding and keep the momentum going under 
the umbrella of mitigation. 
29. 29. Couple educational outreach with hands-on projects. 
30. 30. A monitoring program or annual plan update can help keep the project on the front 
burner. 

Successfully completing a project of this scale requires the time and commitment of 
hundreds of people. The success of the FEMA Integration of Community- and Faith-
Based Organizations into Local Pre-Disaster Mitigation study relied on a national Peer 
Review Team, as well as the generosity of the communities that graciously contributed 
their time, energy, commitment, and enthusiasm to our success. We would like to thank 
the following individuals and communities for their tireless efforts in support of our 
goal: Making our communities safer for everyone. 
Ken Deutsch 
Ken Skalitzky 
American Red Cross 
FEMA Region IV, DHS 

Voluntary Agency Liaison 
Adem Carroll 
Lisa Gibney 
ICNA Relief 
Emergency Planning Specialist 

Nuclear Management Company, LLC 

Plant Support Center, PSC 
Tom Hazelwood 
Lisa Hasegawa 
UMCOR 
Executive Director 

National Coalition for Asian Pacific American 

Community Development 
Debbie Reed Smith 
David Wilson 

Oklahoma Indian Missionary Conference 

The United Methodist Church 
Diana Aviv and Randi Abrams 
Frank J. (Omowale) Satterwhite, Ph.D. 
United Jewish Communities 
President 

National Community Development Institute 
Dick Krajeski and Kris Peterson 
Maria Vorel 
Presbyterian Church USA 
FEMA Headquarters, DHS 
Terry Brill 
Ben Curran 
FEMA Headquarters, DHS 
FEMA Headquarters, DHS 
Fran McCarthy 
Phil Kirk 
FEMA Headquarters, DHS 
FEMA Region VII, DHS 
Carl Cook 
Christy Brown 
FEMA Region X, DHS 
FEMA Headquarters, DHS 

The wonderful and dedicated citizens, governments, and community- and faith-based 
organizations of: 
Bend, OR Brattleboro, VT and the Windham Regional Commission Bound Brook, NJ Cape 
Girardeau, MO Cumberland, MD Eastwick, Philadelphia, PA Evansville, IN Gila River 
Indian Community, AZ North Miami-Dade County and Opa-locka, FL Oakland, CA 
Ouachita Parish, LA Petersburg, IL Polk County, MO Saco, ME Seattle, WA Sioux Falls, SD 
Tallahassee, FL Teton County, WY Tulsa, OK Utica, NY