FEMA

Crisis Counseling Assistance and 

Training Program Guidance

CCP Application Toolkit, Version 5.3, April 2023

Note: Substance Abuse and Mental Health Services Administration (SAMHSA) Center for Mental 

Health Services (CMHS) Project Officers are available to provide technical assistance and 

consultation on the Crisis Counseling Assistance and Training Program (CCP). If you would like to 

speak with a CMHS Project Officer, please contact the SAMHSA Disaster Technical Assistance Center 

(DTAC) at 1-800-308-3515 (Monday–Friday 9 a.m.–5 p.m. eastern time), and a staff member will 

forward your request to the appropriate Project Officer.

You may obtain CCP applications, supplemental instructions, and guidance documents by calling 

SAMHSA DTAC as indicated above or by emailing SAMHSA DTAC at DTAC@samhsa.hhs.gov.
CCP Guidance, Version 5.3 | Page i

Table of Contents

Introduction ........................................................................................................................................1

Section I: Program Overview ................................................................................................................1

The Crisis Counseling Assistance and Training Program ............................................................................ 1 

Eligibility Requirements.............................................................................................................................. 2 

CCP Timeline............................................................................................................................................... 3 

Crisis Counseling Definition........................................................................................................................ 4 

Services Funded Through the CCP.............................................................................................................. 4 

Providers of CCP Services........................................................................................................................... 4 

CCP Primary and Secondary Services......................................................................................................... 4 

Primary CCP Services ......................................................................................................................... 4 

Secondary CCP Services..................................................................................................................... 6 

Section II: CCP Model ...........................................................................................................................6

Typical Individual Reactions to a Disaster.................................................................................................. 7 

Typical Community Reactions to a Disaster............................................................................................... 7 

The Crisis Counseling Approach ................................................................................................................. 8 

The Value of the Crisis Counseling Approach............................................................................................. 9 

The Significance of the Needs Assessment ................................................................................................ 9 

The Goal of the CCP.................................................................................................................................. 10

The CCP Model ......................................................................................................................................... 10

Identifying People in Need of Crisis Counseling....................................................................................... 11

CCP Resource Linkage Versus Case Management and Advocacy ............................................................ 12

CCP Sub-recipients and Staff .................................................................................................................... 13

The Number of Visits Allowed by a Crisis Counselor................................................................................ 13

How Crisis Counselors Are Trained........................................................................................................... 14

The Differences between Crisis Counseling and Traditional Mental Health Treatment.......................... 14

How the CCP Addresses Severe Disaster Reactions................................................................................. 15

Section III: Program Management and Implementation ......................................................................15

Main Components of a Program Management Plan................................................................................ 16

Media and Marketing and the CCP........................................................................................................... 16
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Effective Staffing of the CCP..................................................................................................................... 17

Training..................................................................................................................................................... 17

Staff Stress Management ......................................................................................................................... 18

Data Collection, Evaluation, and Reporting.............................................................................................. 19

Quality Assurance..................................................................................................................................... 20

Section IV: Pre-award Requirements ..................................................................................................20

Applying for the ISP Grant........................................................................................................................ 21

Instruction for Submission of the ISP Application Packet ........................................................................ 21

Extension of the ISP Performance Period................................................................................................. 21

Applying for the RSP Grant....................................................................................................................... 22

Instructions for Submission of the RSP Application Packet...................................................................... 22

General Provisions.................................................................................................................................... 23

Conflict of Interest........................................................................................................................... 23

Mandatory Disclosures.................................................................................................................... 23

Performance Goal............................................................................................................................ 24

Section V: Post-award Requirements..................................................................................................24

Revision of Budget and Program Plans..................................................................................................... 24

Period of Performance ............................................................................................................................. 25

ISP Period of Performance............................................................................................................... 25

ISP Grant No-cost Administrative Extension (for up to 60 days)..................................................... 25

RSP Period of Performance.............................................................................................................. 26

Procurement Requirements Under a Federal Award............................................................................... 26

Reporting (Programmatic and Fiscal Requirements) ............................................................................... 26

Sub-recipient Monitoring and Management............................................................................................ 27

Determining Sub-recipient or Contractor Classification.................................................................. 27

Monitoring and Management.................................................................................................................. 28

Remedies for Noncompliance and Specific Conditions............................................................................ 29

Termination...................................................................................................................................... 30

Opportunities to Object and Appeals of Application Decisions ...................................................... 30

Appeals of Remedies for Noncompliance........................................................................................ 31

Objections/Appeals of Decisions Regarding Allowable Costs.......................................................... 31
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Objections/Appeals of Termination or Suspension......................................................................... 31

Closeout and Retention Requirements for Records................................................................................. 31

ISP .................................................................................................................................................... 31

RSP ................................................................................................................................................... 32

Section VI: Budget and Fiscal Management.........................................................................................33

The Influence of the CCP Model (Fundable Costs)................................................................................... 33

The Budget Narrative ............................................................................................................................... 35

Requests for Budget Adjustments............................................................................................................ 35

Pre-award Costs (ISP Phase)..................................................................................................................... 35

Indirect Costs............................................................................................................................................ 36

Cost Sharing, In-kind Resources, or Matching.......................................................................................... 36

Transfer of Funds...................................................................................................................................... 37

ISP .................................................................................................................................................... 37

RSP ................................................................................................................................................... 38

Appendix Section...............................................................................................................................38

Appendix A. Definitions............................................................................................................................ 38

Appendix B: CCP Services, Positions, and Job Descriptions ..................................................................... 40

Appendix C: Instructions for the Budget Narrative.................................................................................. 45

Required Supporting Documentation To Be Maintained by the CCP.............................................. 52

Appendix D: SF-424 Tip Sheet .................................................................................................................. 54

Appendix E: Federal Financial Report (FFR) SF-425.................................................................................. 57

Appendix F: Federal Financial Report (FFR) SF-425 Instructions.............................................................. 58

FFR Instructions ............................................................................................................................... 58

Reporting Requirements.................................................................................................................. 58

Line-item Instructions for the FFR ................................................................................................... 59
CCP Guidance, Version 5.3 | Page 1

Introduction

The Crisis Counseling Assistance and Training Program (CCP) is a federally funded supplemental 

program administrated by the U.S. Department of Homeland Security (DHS) Federal Emergency 

Management Agency (FEMA). Section 416 of the Robert T. Stafford Disaster Relief and Emergency 

Assistance Act, 42 U.S.C. § 5183, authorizes FEMA to fund mental health assistance and training 

activities in areas that have been declared a major disaster by the President. The Center for Mental 

Health Services (CMHS), within the Substance Abuse and Mental Health Services Administration 

(SAMHSA), works with FEMA through an interagency agreement to provide technical assistance, 

consultation, grant administration, program oversight, and training for state mental health 

authorities, U.S. territories, and designated tribal authorities.

The mission of the CCP is to assist individuals and communities in recovering from the effects of 

natural and human-caused disasters through the provision of community-based outreach and psychoeducational services. The CCP supports short-term interventions that involve assisting disaster 

survivors in understanding their current situation and reactions, mitigating stress, developing coping 

strategies, accessing sources of emotional support, and encouraging linkages with other individuals 

and agencies that help survivors in their recovery process.

The information presented in the program guidance is organized into seven sections: Program 

Overview, CCP Model, Program Management and Implementation, Pre-award Requirements, Postaward Requirements, Budget and Fiscal Management, and the Appendix Section. The program 

guidance should be used in conjunction with the following:

• Immediate Services Program (ISP) and Regular Services Program (RSP) applications and

supplemental instructions

• 44 Code of Federal Regulations (C.F.R.) § 206.171

• Super Circular Requirements 2 C.F.R. Part 200

Section I: Program Overview

The Crisis Counseling Assistance and Training Program

The CCP consists of services focused on preventing or mitigating adverse repercussions of a disaster. 

This goal is achieved with a public health approach. Beginning with the most severely affected group 

and moving outward, the program seeks to serve a large portion of the population affected by the 

disaster. CCP services are community-based and take place anywhere survivors are, including, but not 

limited to, survivor homes, shelters, temporary living sites, and churches and other places of worship.
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The CCP services include supportive crisis counseling, psycho-education, development of coping skills, 

and linkage to appropriate resources, while assessing and referring those members of the community 

who are in need of intensive mental health and substance use treatment to appropriate community 

resources. The CCP engages community gatekeepers and organizations through direct contact with 

stakeholder groups, such as unmet-needs committees, and participation in community events in 

order to facilitate response activities and services to survivors.

Eligibility Requirements

States, U.S. territories, and tribes that have been affected by a major disaster are eligible to 

receive CCP services.

If the severity and magnitude of the disaster are beyond the scope of the state’s, tribe’s, or 

territory’s ability to respond, the state, tribe, or territory may submit an application for 

supplemental federal assistance through the CCP.

The CCP is a supplemental disaster relief program and is not intended to supplant existing state and 

local resources. To obtain assistance under the CCP program, the Governor or his/her authorized 

representative must initiate an assessment of the need for crisis counseling services within 10 days of 

the date of the major disaster declaration. In order to receive CCP funding, the state, territory, or 

tribe must provide a description of its resources and capabilities, as well as local resources and 

capabilities, and an explanation of why these resources cannot meet existing need.1 Following the 

grant award and throughout the life of the program, grantees are expected to conduct ongoing needs 

assessment to justify continued supplemental funding.

Immediate Services Program: The ISP application must be submitted to the FEMA Regional 

Administrator no later than 14 days from the date of declaration. The ISP provides funding not to 

exceed 60 days from the date of the declaration, except if the state, territory, or tribe has 

submitted an application for the RSP. If an RSP application is submitted, the ISP may continue for 30 

additional days while the RSP application is being reviewed for funding.2

Any funds granted pursuant to an ISP must be expended solely for the purposes specified in the 

approved application and budget, regulations, the terms of conditions of the award, and the 

applicable principles prescribed in 44 C.F.R. Part 13.3

The state, territory, or tribe may appeal the Regional Administrator’s decision by submitting 

information justifying a reversal of the decision within 60 days of the date of notification of the

1 § 206.171 (3)(d)(f)(iii)

2 § 206.171 (f)(1)(i)(ii)

3 § 206.171 (f)(v)
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application decision. The Regional Director shall review the material submitted, and after 

consultation with the Secretary, notify the state, territory, or tribe, in writing within 15 days of 

receipt of the appeal, of his/her decision.4

The Regular Services Program: The RSP application must be submitted by the governor or his/her 

authorized representative to the Assistant Administrator for the Recovery Directorate through the 

Regional Administrator, and simultaneously to the Secretary, no later than 60 days following the 

declaration of the major disaster. The RSP will not exceed 9 months from the date of the Notice of 

Award (NOA), except that upon the request of the state, territory, or tribe to the Regional 

Administrator and the Secretary, the Assistant Administrator for the Recovery Directorate may 

extend the program period for more than 90 days where he or she deems it to be the public interest.5

The state, territory, or tribe may appeal the Assistant Administrator’s decision, in writing, within 60 

days of the date of notification of the decision. The Assistant Administrator, in consultation with the 

Secretary and Regional Administrator, shall review the material submitted and notify the state, 

territory, or tribe, in writing within 15 days of receipt of the appeal, of his/her decision.6

CCP Timeline

4 § 206.171 (f)(5)(i)

5 § 206.171 (g)(4)(i)

6 § 206.171 (5)
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Crisis Counseling Definition

Crisis counseling means the application of individual and group treatment procedures which are 

designed to ameliorate the mental and emotional crises and their subsequent psychological and 

behavioral conditions resulting from a major disaster or its aftermath.7

Services Funded Through the CCP

The CCP funds the following services:

• Individual crisis counseling

• Basic supportive or educational contact

• Group crisis counseling

• Public education

• Community networking and support

• Assessment, referral, and resource linkage

• Development and distribution of educational materials

• Media and public service announcements

Providers of CCP Services

CCP services can be provided by the state, territory, or tribe or through a contract with local mental 

health service providers that are familiar with the communities affected by the disaster. The CCP 

encourages the use of mental health professionals and trained paraprofessionals, preferably people 

who live and work in the community and reflect the cultural makeup of the community served.

CCP Primary and Secondary Services

There are two types of CCP services: primary and secondary. Primary CCP services are higher in 

intensity, as they involve personal contact with individuals, families, or groups. Secondary CCP 

services have a broader reach and less intensity with a focus of reaching as many people as possible.

Primary CCP Services

Individual Crisis Counseling

Individual crisis counseling involves a process of engagement lasting at least 15 minutes. It focuses on 

helping disaster survivors understand their reactions, review their options, and connect with other 

individuals and agencies that may assist them in improving their situations. Staff members who 

provide individual crisis counseling are active listeners who offer reassurance, practical assistance,

7 § 206.171 (b)(3)
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psycho-education, and emotional support, and who teach behavioral techniques for coping 

with stress.

Brief Educational or Supportive Contact

Educational information or emotional support is provided to individuals or groups, and typically is less 

than 15 minutes in duration. CCP staff members who provide brief educational or supportive contact 

are helpful educators and active listeners. They offer general support and provide general 

information, typically on resources and services available to disaster survivors. During this type of 

intervention, crisis counselors do not usually engage in in-depth discussion as they would during 

individual crisis counseling or psycho-education.

Group Crisis Counseling

Group crisis counseling occurs when disaster survivors and community members are brought 

together to meet for more than 15 minutes. A trained crisis counselor leads the group. The structure 

and format of group crisis counseling may vary, but group members should have similar levels of 

exposure to the disaster. Groups may be supportive or psycho-educational in nature. CCP crisis 

counselors who facilitate this service encourage the group members to do most of the talking, and 

they offer skills to help the group members cope with their situations and reactions. Throughout the 

process, the counselors assist group members with referrals to services often needed.

In addition to psycho-education or support groups, the CCP also promotes the development of selfhelp groups. A mental health professional or paraprofessional normally facilitates the CCP-initiated 

self-help groups; a group can work toward autonomy by inviting a member to be a co-facilitator.

Initially, the crisis counselor may be the primary leader of the group. Later, the group may continue 

without the presence of a professional or paraprofessional counselor, and be led by one or more of 

the group members. When group members are responsible for their own group process without the 

benefit of the presence of a professional or paraprofessional (a self-help support group), the group is 

no longer a CCP effort, since the quality of the group process cannot be guaranteed and lacks 

reporting or accountability mechanisms.

Public Education

CCP outreach staff provide survivors with information and education about typical reactions, helpful 

coping strategies, and available disaster-related resources. CCP staff members commonly provide this 

service through public speaking at community forums, professional in-service meetings, and local 

government meetings. In contrast to the group crisis counselor, the CCP staff member who conducts 

public education does most of the talking. The need for public educational services is likely to 

increase throughout the course of the CCP.

Assessment, Referral, and Resource Linkage

Crisis counselors receive training in assessing an individual’s or family’s need for referral to additional 

disaster relief services or mental health or substance use treatment. Crisis counselors refer survivors 

experiencing severe reactions to the appropriate level of care. Furthermore, survivors can receive a 

referral for other disaster relief resources to meet a wide range of physical, structural, or economic
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needs. The crisis counselors who provide assessment and referral services need to be knowledgeable 

about local resources and work diligently to engage community organizations.

Community Networking and Support

Crisis counselors build relationships with community resource organizations, faith-based groups, and 

local agencies. They often attend community events to provide a compassionate presence and to be 

available to provide crisis counseling services when needed. They may initiate or attend unmet-needs 

committee or long-term recovery group meetings, or other disaster relief-oriented gatherings. It is 

important to note that communities, families, and survivors should “own” their community

events. Crisis counseling staff can provide useful consultation during the planning process and 

valuable information and services at these events to demonstrate their support for members of 

the community.

Secondary CCP Services

Development and Distribution of Educational Materials

Crisis counselors distribute flyers, brochures, tip sheets, and web-based materials to educate 

survivors and the community. Topics include basic disaster information, typical reactions to disaster, 

coping skills, and individual and community recovery and resilience. Materials that address the needs 

of at-risk populations, as well as materials developed in multiple languages, should be available.

Materials may be handed out or left in public places, published in local newspapers, or mailed to 

survivors in areas most affected by a disaster. Examples of these materials can be obtained from the 

SAMHSA Disaster Technical Assistance Center (DTAC).

Media and Public Service Announcements

CCP staff engage in media activities and public messaging in partnership with local media outlets; 

state, territory, tribal, and local governments; charitable organizations; or other community brokers 

of information. Media activities and messaging are designed to reach a large number of people in 

order to promote access to CCP services and educate survivors and the community about disaster 

reactions, coping skills, and individual or community recovery and resilience. Venues for this 

messaging vary and may include media interviews with CCP spokespeople, television or radio public 

service announcements, use of websites or email, or advertising.

Section II: CCP Model

Section I of the CCP guidance provides an overview of the CCP. Brief descriptions of the services 

provided by the CCP and eligibility and application requirements are discussed. Some information on 

key elements of the needs assessment process for service provision and on program reporting 

requirements is also included. This section is intended to provide an overview of the program model 

and the importance of understanding how the model works in coordination with the program plan, 

the assessment process, and the budget to have a cohesive CCP that meets the mental health needs 

of disaster survivors.
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Typical Individual Reactions to a Disaster

Typical reactions to a disaster include physical, emotional, cognitive, and behavioral responses that 

may be experienced by individuals and families. Each category of disaster response includes a diverse 

set of reactions that may change over time. For example, a survivor may experience hypervigilance 

immediately after a disaster and then, over time, lapse into a state of chronic fatigue. Whether the 

reactions are adaptive or become distressing, people who are affected by a disaster may

experience more than one type of reaction, and these reactions may change over time. Many 

people may experience anxiety, loss of sleep or appetite, stress, grief, irritability, hopelessness, 

and family conflict.

Typical Community Reactions to a Disaster

While each survivor experiences the disaster as an individual, he or she also experiences it as part of a 

community. The following figure illustrates six phases of a community’s response to a disaster.

• Phase 1, the pre-disaster phase, is characterized by fear and uncertainty. The specific

reactions a community experiences depend on the type of disaster. Disasters with no warning

can cause feelings of vulnerability and lack of security; fears of future, unpredicted tragedies;

and a sense of loss of control or the loss of the ability to protect oneself and one’s family. On

the other hand, disasters with warning can cause guilt or self-blame for failure to heedthe
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warnings. The pre-disaster phase could be as short as hours, or even minutes, such as during 

a terrorist attack; or it could be as long as several months, such as during a hurricane season.

• Phase 2, the impact phase, is characterized by a range of intense emotional reactions. As

with the pre-disaster phase, the specific reactions also depend on the type of disaster that is

occurring. Slow, low-threat disasters have psychological effects different from those of rapid,

dangerous disasters. As a result, these reactions can range from shock to overt panic. Initial

confusion and disbelief typically are followed by a focus on self-preservation and family

protection. The impact phase is usually the shortest of the six phases of disaster.

• Phase 3, the heroic phase, is characterized by a high level of activity with a low level of

productivity. During this phase, there is a sense of altruism, and many community members

exhibit adrenaline-induced rescue behavior. As a result, risk assessment may be impaired.

The heroic phase often passes quickly into phase 4, the honeymoon phase.

• Phase 4, the honeymoon phase, is characterized by a dramatic shift in emotion. During the

honeymoon phase, disaster assistance is readily available; community bonding occurs.

Optimism exists that everything will return to normal quickly. As a result, numerous

opportunities are available to establish and build rapport with affected people and groups,

and to build relationships with stakeholders. The honeymoon phase typically lasts only a

few weeks.

• Phase 5, the disillusionment phase, is characterized by a stark contrast to the honeymoon

phase. During the disillusionment phase, communities and individuals realize the limits of

disaster assistance. As optimism turns to discouragement and stress continues to take a toll,

negative reactions, such as physical exhaustion or substance use, may begin to surface. The

increasing gap between need and assistance leads to feelings of abandonment. Especially as

the larger community returns to business as usual, there may be an increased demand for

services, as individuals and communities become ready to accept support. The

disillusionment phase can last months, and even years. It is often extended by one or more

trigger events, which usually include the anniversary of the disaster.

• Phase 6, the reconstruction phase, is characterized by an overall feeling of recovery.

Individuals and communities begin to assume responsibility for rebuilding their lives, and

people adjust to a new “normal” while continuing to grieve losses. The reconstruction phase

often begins around the anniversary of the disaster and may continue for some time beyond

that. Following catastrophic events, the reconstruction phase may be years induration.

The Crisis Counseling Approach

Crisis counseling is a strengths-based, outreach-oriented approach to helping disaster survivors 

identify and access personal and community resources that will aid the recovery process. It consists 

primarily of supportive, educational, face-to-face interventions with individuals and communities in 

their natural environments. The CCP seeks to empower survivors by educating them about disaster
CCP Guidance, Version 5.3 | Page 9

reactions, teaching them coping skills, assessing them for individual needs, and linking them to 

appropriate community resources.

Crisis counseling is considered strengths-based because it assumes most disaster survivors are 

naturally resilient. By providing support, education, and linkage to needed community resources,

crisis counseling helps equip survivors to address and recover from the negative consequences 

of disaster.

While crisis counseling assumes a natural resilience in the majority, it also includes screening and 

assessing for severe reactions in the minority. Crisis counselors know that a subset of people in the 

disaster-affected population will develop diagnosable conditions. They are trained to identify 

disaster survivors experiencing severe reactions and refer these individuals to appropriate 

treatment services and community resources.

The Value of the Crisis Counseling Approach

Although a disaster may leave most people physically unharmed, it affects everyone who experiences 

it. A key step toward recovery is regaining a sense of control. Crisis counseling provides survivors with 

the support, education, and skills they need to regain a sense of control and rebuild their lives.

Crisis counseling assistance is practical in nature. Many survivors will not seek help, and some may 

even reject it. While survivors may not want “psychological counseling” or “mental health services,” 

they usually will welcome the genuine concern and concrete support offered by crisis counselors.

Crisis counseling also is valuable because it addresses the needs of the community as a whole, in 

addition to those of the individual. During a disaster, both individuals and communities experience a 

range of emotional highs and lows that typically are associated with the phases of disaster recovery. 

Communities may move from a sense of heroism and altruism to a sense of hopelessness and 

abandonment, all in a short period of time. Crisis counselors provide support, education, and 

resource linkage services that empower individuals and communities and assist them in reaching 

the reconstruction phase of recovery.

The Significance of the Needs Assessment

Ongoing needs assessment is the foundation of the CCP. It is a continuous process necessary to 

ensure the relevance of the program for the duration of the effort. Formal sources for needs 

assessment might include analyses of damage assessments and registrants for services from FEMA 

or the CCP, and may involve other data sources including special use surveys and assessment tools. 

A needs assessment also might rely on corroborative data including anecdotal evidence from crisis 

counselors or feedback from other disaster relief providers. These sources may be especially 

important to inform adaptation of program outreach and services to meet changing needs in 

communities affected by disaster.
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The application and needs assessment provide an opportunity for the state, territory, or tribe to 

demonstrate the nature and extent of mental health and substance use-related needs resulting from 

a disaster and how those needs surpass local resources and capabilities.

The needs assessment identifies populations who should be targeted to receive crisis counseling 

services. In most disaster situations, children, adolescents, older adults, and people with disabilities or 

other access and functional needs are considered special populations. The needs assessment may 

reveal additional groups who are vulnerable to disaster impacts or who have been particularly 

affected by the disaster.

The Goal of the CCP

The goal of the CCP is to help disaster survivors recover from adverse reactions to disaster and 

begin to rebuild their lives. The CCP focuses on helping them understand their personal reactions, 

helping them plan action steps and solutions to resolve losses and overcome adversities, and linking 

them to other community resources.

The CCP helps survivors prioritize their needs and connect with organizations or people who can 

assist them. Although the CCP is a temporary disaster relief program, it leaves behind a

permanent legacy of more adaptive coping skills, educational and resource materials, and enhanced 

community linkages.

The CCP Model

The CCP is designed to provide immediate mental health support, primarily relying on face-to-face 

contacts with survivors in their communities. The CCP provides these support-centered services to 

survivors over a specific period of time. Eight key principles guide the CCP approach.

CCP services can be described as follows:

Strengths-based: Crisis counselors assume natural resilience in individuals and communities, and 

promote independence rather than dependence on the CCP, other people, or organizations. Crisis 

counselors help survivors regain a sense of control.

Outreach-oriented: Crisis counselors take services into the communities rather than waiting

for survivors to come to them.

More practical than psychological in nature: Crisis counseling is designed to prevent or mitigate 

adverse repercussions of disasters rather than to treat them. Crisis counselors provide support and 

education, listen to survivors, and accept the content at face value. Crisis counselors help survivors to 

develop a plan to address self-identified needs and suggest connections with other individuals or 

organizations that can assist them. The CCP does not provide mental health or substance use 

treatment, or critical incident stress debriefing.

Anonymous: Crisis counselors do not classify, label, or diagnose people. No personally identifiable 

records or case files are kept. 
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Conducted in nontraditional settings: Crisis counselors make contact with survivors in their homes 

and communities, not in clinical or office settings.

Culturally aware: The CCP model embraces cultural and spiritual diversity as reflected in culturally 

relevant outreach activities that represent the communities served.

Designed to strengthen existing community support systems: Crisis counselors support, but do not 

organize or manage, community recovery activities. Likewise, the CCP supplements, but does not 

supplant or replace, existing community systems.

Provided in ways that promote a consistent program identity: Crisis counselors should work 

together early to establish a unified identity. The CCP strives to be a single, easily identifiable 

program, with services delivered by various local agencies.

Identifying People in Need of Crisis Counseling

Program management and ongoing needs assessment are the foundation of the CCP. These 

continuous processes are necessary to ensure the effectiveness of the program for the duration of 

the effort. An initial needs assessment provides the rationale and justification for the CCP and 

identifies at-risk populations who will be targeted for outreach. Formal sources for needs assessment 

might include analyses of damage assessments and registrants for services from FEMA or the CCP, 

and may involve other data sources including special use surveys and assessment tools. A needs 

assessment also might rely on corroborative data including anecdotal evidence from crisis counselors 

or feedback from other disaster relief providers. These sources may be especially important to inform 

adaptation of program outreach and services to meet changing needs in communities affected by

disaster.

The CCP utilizes a population exposure model to help identify and prioritize groups who could benefit 

from crisis counseling services. This model mirrors a “ripple effect,” illustrating how the effect of a 

disaster expands to wider segments of the community. The injured and bereaved represented in “A” 

are those with the highest level of exposure to the disaster and those most likely to benefit from CCP 

services that are delivered face-to-face and are of higher intensity. Those represented in each 

subsequent ring have a lesser degree or intensity of exposure. Those in ring “E” have experienced 

little to no direct exposure to the disaster and, thus, may be targeted for the lowest intensity of 

service such as public education and information.

Population Exposure Model A. Injured survivors, bereaved family members

B. Survivors with high levels of exposure to

disaster trauma, or evacuated from disaster zones

C. Bereaved extended family and friends, first

responders

D. People who lost homes, jobs, and possessions;

people with preexisting trauma and other

dysfunction; at-risk groups and other disaster

responders

E. Affected people from the larger community
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A properly performed needs assessment is particularly important for identifying populations at greatest 

risk for mental health and substance use-related problems. A thorough and thoughtful needs 

assessment will help the state, territory, or tribe identify vulnerable groups and understand how they 

are most affected by the specific disaster.

CCP Resource Linkage Versus Case Management and Advocacy

CCP services include referrals and linkage to health and mental health services, disaster recovery 

resources, and tangible goods. Linkage may occur as a result of a single visit and includes limited or 

informal follow-up. The intent of CCP resource linkage services is to assist disaster survivors in accessing 

resources without developing the expectation of a long-term relationship and a structured case plan.

The emphasis for the crisis counselor is on empowering survivors to make plans, to become familiar with 

local resources, and to act on their own behalf to connecting with the resources they need.

Case management, as traditionally practiced by human service agencies, often involves more 

accountability on the part of the worker to ensure clients successfully access needed resources and 

supports. In a traditional case management model, it is common for a formal case plan to be established 

and for regular follow-up to occur. Traditional advocacy emphasizes a worker representing the needs 

and interests of the population served to ensure access to resources. In some cases, advocacy can be an 

adversarial process directed toward influencing a system, resource, or local mental health agency to 

serve a client.

The CCP model emphasizes empowerment and collaboration. For circumstances in which longer term, 

more intensive services are needed, a crisis counselor may provide some extra assistance or limited, 

short-term follow-up to a survivor who is particularly overwhelmed or who has literacy or language 

barrier issues. A crisis counselor, in the presence of a disaster survivor, may role-play making phone calls 

and show how asking important questions facilitates obtaining resources for the survivor and his or her 

family. The crisis counselor then encourages the survivor to accomplish these tasks on his or her own.

With reinforcement and guidance from the crisis counselor, often provided during a single visit, the 

survivor is then empowered to act independently to access resources. Whenever possible, the crisis 

counselor encourages disaster survivors to utilize resource lists and information to make their own 

phone calls, fill out their own forms, and set up their own appointments. Should advocacy for an 

individual or community be needed, crisis counselors should seek out faith-based organizations or other 

agencies to help respond to these needs.
CCP Guidance, Version 5.3 | Page 13

Traditional Case Management CCP Resource Linkage

Provides services to individuals who may have a 

serious and persistent mental illness or other 

disability of indefinite duration.

Provides services to disaster survivors, regardless 

of level of functioning.

Advocates for and influences the provision of 

services for clients.

Empowers disaster survivors to advocate for their 

own services and resources.

Includes filling out forms and arranging 

appointments for clients.

Assists disaster survivors in accessing services by 

guiding them through typical application and 

referral processes.

Assumes responsibility for ensuring clients 

access needed services, and may follow up with 

local mental health agencies to ensure 

compliance with appointments.

Assists disaster survivors in identifying services, 

and may follow up with survivors, while 

empowering them to be responsible for accessing 

their own services.

Has a responsibility to ensure continuity of care 

for clients.

Assists disaster survivors in accessing disasterrelated services, as prioritized by survivors.

Involves long-term relationships with clients. Involves short-term relationships with disaster 

survivors.

CCP Sub-recipients and Staff

CCP sub-recipients usually are community behavioral health organizations that have an existing 

relationship with the state, territory, or tribe. The CCP requires training of paraprofessional staff 

who understand the cultures of the community and reflect the ethnic groups they serve.

CCP staff typically work in teams of two or more to perform outreach services. Typically, teams include a 

mix of behavioral health professionals and trained paraprofessionals. Each team should have a team 

leader who has the clinical expertise needed to supervise staff. Trained professional staff members also 

are responsible for assessing survivors for severe reactions. Remote communication devices, such as a 

mobile phone, are essential to ensure outreach worker safety.

The Number of Visits Allowed by a Crisis Counselor

The CCP does not limit the number of times crisis counselors may meet with individuals or families. 

However, a crisis counselor should be cautious about establishing expectations of long-term services or 

relationships, given the program’s temporary nature. Typically, crisis counselors are trained to consider 

assessing survivors they have seen on three or more occasions for referral to other kinds of resources or 

behavioral health care if needed. Crisis counselors may see survivors more than three times to work on 

coping strategies, stress management activities, or other crisis counseling interventions.
CCP Guidance, Version 5.3 | Page 14

How Crisis Counselors Are Trained

FEMA and SAMHSA have developed a series of standardized CCP training modules for crisis counselors 

and program administrators. These required trainings teach crisis counselors about individual and 

community reactions to disaster, prepare them to deliver crisis counseling services, inform them about 

CCP procedures and data collection, and provide them with techniques to manage their own stress.

The state, territory, or tribe articulates a comprehensive training plan in the ISP and RSP applications. 

These plans include the standardized CCP trainings and any supplemental training on disaster-related 

topics that the state, territory, or tribe deems appropriate. The standard CCP trainings developed by 

FEMA and SAMHSA are delivered by instructors experienced in the CCP model and trained to deliver 

CCP-required trainings. The names of instructors should be included in the ISP and RSP applications, and 

they should be approved by SAMHSA. Additional training provided must be based on specific disaster 

needs.

The Differences between Crisis Counseling and Traditional Mental Health Treatment

Mental health treatment, as typically defined within the professional community, implies the provision 

of assistance to individuals for a diagnosable disorder. In contrast, crisis counseling seeks to prevent 

the onset of diagnosable disorders by helping the majority of survivors understand that they are 

experiencing common reactions to extraordinarily uncommon events. With the help of psychoeducation, emotional support, skills building, and linkage to services, most survivors will exhibit 

resilience and recovery.

While a mental health professional typically will provide services in an office or clinical setting, the crisis 

counselor supports people in their communities. Typical settings for crisis counseling may include a 

disaster survivor’s home, a workplace, a school, a community center, or even a coffee shop.

A mental health professional often will engage a client in short- or long-term recovery treatment, 

committing the person to a set number of sessions. The crisis counselor should treat each encounter as 

if it will be the only one, assisting the survivor with identifying needs and goals. In disaster situations, 

survivors often are forced to move from place to place, requiring this more psycho-educational 

approach. The mental health professional may be concerned with treating a particular symptom or set 

of symptoms; however, the crisis counselor uses a holistic approach, assessing and responding to all of 

the person’s needs within the context of his or her situation.

The mental health professional often takes a directive role, deciding what issues need to be addressed 

and in what manner. The crisis counselor assists survivors in identifying their most pressing difficulties 

and needs, as well as prioritizing and planning how they can address these needs best. The crisis 

counselor also is a supportive voice and may provide information about common reactions to disaster, 

effective coping strategies, and available community resources.

Finally, while a traditional mental health professional will make a diagnosis and treat mental illnesses, 

the crisis counselor will avoid classifying, labeling, or diagnosing people in any way. The crisis counselor 

keeps no individual records or case files.
CCP Guidance, Version 5.3 | Page 15

Key differences between the two approaches are summarized below.

Traditional Mental Health Crisis Counseling

Is office based. Is home and community based.

Diagnoses and treats mental illnesses. Assesses strengths and coping skills.

Focuses on personality and functioning. Seeks to restore or improve functioning.

Examines content. Accepts content at face value.

Explores past experiences and their influence on 

current problems.

Validates common reactions and experiences.

Has psychotherapeutic focus. Has psycho-educational focus.

Keeps records, charts, case files, etc. Does not collect any identifying information.

How the CCP Addresses Severe Disaster Reactions

Severe reactions to a disaster may include depressive disorders, suicidal behavior, substance use, acute 

stress disorder, posttraumatic stress disorder, dissociative disorders, and anxiety disorders. The 

treatment of severe reactions is beyond the scope of the CCP. However, assessing for severe reactions 

and making appropriate referrals are crucial parts of the program. Through training, crisis counselors 

know that few survivors will develop diagnosable conditions, but they must be able to identify those 

who do and refer them to the appropriate levels of care.

Section III: Program Management and Implementation

CCP supervisory staff must ensure that services are delivered effectively to meet the needs of disaster 

survivors and at-risk individuals and groups. Training, supervision, regular meetings, analysis of service 

and fiscal data, and quality assurance systems are essential elements for effective program 

management. CCP staff collaborate to ensure that the resource and service components of the CCP 

work together in a manner consistent with the program model. FEMA and SAMHSA project officers have 

federal oversight responsibility for the CCP and will work with the state, territory, or tribe to ensure 

administrative consistency at all levels. Ongoing analysis ensures program services meet the changing 

needs brought on by the phases of community reactions to the disaster and aspects of disasterrecovery.

The ISP and RSP grant applications provide details on how the state, territory, or tribe will 

provide training, manage and deploy resources, and ensure quality and accountability.
CCP Guidance, Version 5.3 | Page 16

Main Components of a Program Management Plan

The components of the program management plan vary given the needs of the state, territory, or tribe 

and the reach of the disaster. The interrelated components promote effective delivery of services, and 

evolve to meet new identified disaster needs.

Typical components of a program management plan include the following:

• Performing ongoing needs assessment

• Developing and effecting outreach strategies to identify and serve affected individuals, groups,

and the community

• Ensuring supervision and quality assurance at the state, territory, or tribe and subrecipient levels

• Employing program media and marketing strategies

• Recruiting and hiring staff

• Providing training

• Providing staff stress management

• Ensuring effective fiscal management

• Accomplishing program evaluation

Media and Marketing and the CCP

Establishing identity and public awareness are key components of program management. It is important 

for the program to select a name in order to develop a cohesive identity among the sub-recipients. All 

CCP staff need to share a group identity. This is achieved through training and through the use of media 

and marketing strategies that define program services and inform the community about the CCP.

Strategies to build a program identity and to market services include the following:

• Developing a brand for the program: This involves establishing a clearly recognizable program

name and logo, or design elements to appear on all program materials. Staff members are

provided with items, such as t-shirts, business cards, hats, or badges, with the specific program

name and logo.

• Using media outlets: Television, print, radio, and the internet can be used to increase

awareness and accessibility of the CCP. Programs may develop public service announcements,

interviews, articles, advertisements, letters to the editor, or educationalmaterials.

• Establishing toll-free numbers or hotlines: A toll-free line may be established purely for

informational purposes, or a hotline that provides counseling via phone may be incorporated

into the program.
CCP Guidance, Version 5.3 | Page 17

• Establishing program websites: Program websites explain the CCP services and link to other

disaster-related resources whenever possible.

• Developing and revising outreach and psycho-educational materials: Materials are tailored to

address the unique characteristics of a specific disaster or CCP.

• Engaging in community networking: Staffing information booths and providing presentations at

community events can be an effective way for the CCP to gain visibility. Staff also may attend

meetings to discuss disaster survivors’ needs and available resources.

• Promoting word-of-mouth promulgation: Outreach workers may encourage people to spread

the word about the CCP. This is sometimes the most effective method of program promulgation,

and it is free!

Effective Staffing of the CCP

CCP staff roles and the number of hires for each position to include in the staffing plan are informed by 

the needs assessment. The state, territory, or tribe determines how staff members are deployed to 

meet the needs of disaster survivors and at-risk groups. For safety and efficacy, crisis counselors 

typically are deployed in teams. Team deployment is linked with the CCP outreach strategy in order to 

target services to those individuals and groups identified to be in the greatest need. In its essential 

staffing, the CCP should reflect the cultural demographics of the affected area and use professionals 

with prior training and experience in the mental health and substance use fields. For more detailed 

information regarding suggested position descriptions, refer to Appendix B: CCP Services, Positions, and 

Job Descriptions.

Training

In order for ongoing programs to be successful, skilled staff need to be trained on expectations and 

limits of services, and on how to ensure appropriate adherence to the CCP model. The quality of service 

provision is key to program success, and comprehensive training is essential.

The CCP model includes standard trainings performed at key points throughout the ISP and RSP. Training

materials and recommendations for qualified trainers are provided by SAMHSA and through SAMHSA 

DTAC. Often, personnel from other assistance and disaster relief agencies are invited to attend to gain 

understanding of program services and the CCP model. CCP management must be proactive in planning 

for training. This includes scheduling meeting space and identifying appropriate trainers, when possible.

The required standard CCP trainings are organized into modules that are provided to states, 

territories, or tribes on CD by SAMHSA DTAC once a CCP is approved.

Core Content Training: This is the basic CCP skills-building training and includes administrative 

procedures and data collection information specific to the program. The course takes place in 2 days, 

during which time crisis counselors are provided with critical information and skills related to individual, 

group, and community outreach strategies. This training is conducted during the first few weeks of the
CCP Guidance, Version 5.3 | Page 18

ISP. However, ongoing training must be provided to ensure all new crisis counselors receive the Core 

Content Training prior to working independently within the program.

Transition to RSP Training: During this course, existing and newly hired CCP staff review key concepts 

related to crisis counseling skills, with an emphasis on longer-term service provision. This curriculum 

highlights how the needs of disaster survivors and communities evolve in the RSP and differ from those 

encountered in the immediate disaster response. If the state, territory, or tribe applied for the RSP 

only, it should begin with the Core Content Training. This training usually takes place as soon as formal 

RSP grant funding is awarded.

RSP Midprogram Training: This training typically is held 3–6 months into the RSP. Issues of staff morale 

and stress management for sub-recipients are addressed. A focus is maintained on how crisis counselors 

will continue to provide services under difficult circumstances. This training includes problem-solving 

techniques for specific issues commonly encountered in the CCP such as emerging substance use or 

significant mental health needs. It also begins to address the subject of program phasedown.

Disaster Anniversary Training: This training is held several weeks before the first anniversary of the 

disaster event. Crisis counselors are taught expected anniversary reactions and intervention strategies. 

This training can be paired with the RSP Midprogram Training or the RSP Phasedown Training, 

depending on the anniversary date.

RSP Phasedown Training: Phasedown training should take place 6–8 weeks prior to the scheduled 

phasedown of the CCP. All CCP administrative and outreach staff attend. Topics in this training include 

staff stress management and future planning, assisting the program and its staff to document the event, 

planning to leave a legacy for the community, resource linkage and referrals, and continuity of service 

via community partnerships.

The CCP training plan is not limited to providing required trainings. The state, territory, or tribe

should identify and deliver additional trainings based on specific disaster and staff needs. Additional 

recommended training areas include more in-depth learning about specific crisis counseling 

interventions, as well as cultural competence, working with children, and mental health or substance 

use assessment and referral. To promote community partnerships, CCP leadership is encouraged to 

share training opportunities with other disaster and community providers.

In quarterly reports, programs should document training sessions held, describe the content of the 

sessions, and note the number of people who attended. As highlighted in the training section of this 

document, required training takes place throughout the program period and should be planned in a 

proactive manner. Optional training may take place, as deemed appropriate by the state, territory,

or tribe.

Staff Stress Management

For services provided to be high in quality, the outreach staff providing them must be able to engage in 

self-care while they assist others. Many staff members of a CCP are also survivors of the disaster.
CCP Guidance, Version 5.3 | Page 19

Interacting with disaster survivors is extremely rewarding but also may produce strong levels of anxiety, 

frustration, anger, or depression in some workers. Sustained service provision can become debilitating 

when coupled with a staff member’s personal experience of loss. It is, therefore, critical that ongoing 

staff stress management is integrated into the CCP at all levels of the program. All standard CCP 

trainings provided by SAMHSA include content on individual staff stress management. The program 

management plan developed by the state, territory, or tribe must include provisions for organizational 

stress management. Elements of an organizational stress management plan are as follows:

• Clearly defined management and supervision structure

• Defined purpose and goals

• Functionally defined roles reinforced through effective supervision

• Sound clinical consultation, support, and supervision

• Supportive peer relationships

• Active stress management program

• Comprehensive training plan

Data Collection, Evaluation, and Reporting

Consistent and timely data collection and evaluation are necessary to measure success of outreach 

efforts and the changing needs of disaster survivors. The state, territory, or tribe program 

management plan should include mechanisms to collect, examine, and react to immediate and 

changing needs encountered by crisis counselors. Frequent analysis of both CCP data and feedback 

provided by staff allows the program to evolve to meet needs as they arise. The process improves the 

program’s behavioral health disaster response, documents the program’s accomplishments, and 

provides accountability information to stakeholders (e.g., Congress, Government Accountability Office, 

federal agencies). SAMHSA and FEMA also use data to justify program efforts, as well as to make 

modifications to the CCP model and program service delivery. The state, territory, or tribe is required 

to submit a summary of up-to-date program data with their programmatic quarterly and final reports.

Procedures for data collection and evaluation include the following:

• Establishment of quality control and assurance processes is necessary for data collection and

analysis. Typical quality control procedures include management checking forms for

completeness prior to approval; staff (those responsible for evaluation at the central level)

checking for consistency and accuracy, and giving feedback to the sub-recipient-level

supervisors; and staff developing ways to resolve errors in collected data forms.

• All CCP administrators and managers should carefully review evaluation and reporting

requirements.

• CCP award conditions require collecting information on specific forms in specific formats. This

should not limit the state, territory, or tribe and sub-recipients in collecting additional
CCP Guidance, Version 5.3 | Page 20

information that will assist in both program improvement and process. The specific required 

forms are detailed in the NOA.

• CCP award conditions require database development and data delivery to SAMHSA upon

submission of each quarterly report and with the finalreport.

• Data on service delivery must be collected using the Individual/Family Crisis Counseling Services

Encounter Log, Group Encounter Log, Weekly Tally Sheet, and the Child/Youth and Adult

Assessment and Referral Tools—each a part of the standard FEMA CCP data toolkit as approved

by the Office of Management and Budget (OMB) (OMB No. 0930–0270). The Participant

Feedback Survey and Service Provider Feedback Survey are also included in the data toolkit.

Quality Assurance

The CCP is a time-limited program that must identify and address emergent issues related to both 

disaster survivor needs and operational realities, while developing and implementing solutions to 

improve program services. Quality assurance and quality improvement activities are developed even 

before the program begins and assist the state, territory, or tribe in reporting program highlights and 

issues to SAMHSA and FEMA through regular program monitoring and reporting. Activities related to 

quality assurance include the following:

• Regular onsite supervision, training, and consistent communication between CCP management

and workers providing services

• Weekly meetings and regular submission of data collection forms

• Phone and email communication whenever workers have questions or concerns

• Collecting and organizing programmatic materials and data to continue to improve service

provision and educational materials

• Identifying problems or gaps in service through data and informantfeedback

• Redirecting resources and modifying the service plan

• Conducting ongoing needs assessment

• Providing information to workers to improve services

Section IV: Pre-award Requirements

A completed and signed application and federal forms are required to apply for the ISP or RSP. To apply 

call SAMHSA DTAC at 1–800–308–3515.
CCP Guidance, Version 5.3 | Page 21

Applying for the ISP Grant

After a Presidential disaster declaration that includes Individual Assistance (IA), states, U.S. territories, 

and federally recognized tribes may apply for the ISP. An ISP application package must be submitted 

within 14 days of the declaration date and include the following documentation, which can be found on 

the CCP Online Toolkit (https://www.samhsa.gov/dtac/ccp-toolkit/apply-funding/immediate-servicesprogram-isp): 

• ISP application

• Request for Federal Assistance (SF-424): A federal form OMB requires for grant applications. All

entities that apply for CCP funds must submit a completed SF-424 signed by the Governor or

Governor's Authorized Representative, or equivalent authorized representative for thetribe.

• Budget Information for Non-Construction Programs (SF-424A): A federal form OMB requires

for grant applications. Complete "Section B—Budget Categories," Column (1) only, for the total

CCP budget.

• Assurances for Non-Construction Programs (SF-424B): A signature isrequired.

• Budget Narrative: The budget narrative should include a detailed justification for all cost

categories requested in the SF-424A. Refer to the Appendix Section for additional instructions

on completing the budget narrative.

Instruction for Submission of the ISP Application Packet

Prior to the 14-day deadline, the state, territory, or tribe must mail an original hard copy of the 

completed ISP application packet to the FEMA Human Services IA Specialist at the Joint Field Office 

(JFO). In order to expedite the review process, it is helpful if the state, territory, or tribe submits an 

electronic copy of the application to the FEMA JFO/Region, FEMA Headquarters (HQ), and SAMHSA 

federal staff. Once received, the FEMA Human Services IA Specialist and the SAMHSA Project Officer will 

review the application to ensure all required documentation meets the minimum eligibility 

requirements per 44 C.F.R. § 206.171 and the General Terms and Conditions outlined in 2 C.F.R. § 

200.210.

Extension of the ISP Performance Period

ISP funding shall not exceed 60 days following the disaster declaration, unless an RSP grant application 

is submitted for consideration of additional federal funding. ISP funding may continue up to 30 

additional days to allow time for FEMA HQ, SAMHSA, and the Human Services IA Specialist to review the 

application. Furthermore, if extenuating circumstances exist, the FEMA Regional Administrator may 

authorize an additional extension of up to 30 days in accordance with 44 C.F.R.

§ 206.171 (i), (ii), and (iii).
CCP Guidance, Version 5.3 | Page 22

Applying for the RSP Grant

The RSP application packet is due 60 days after the date of declaration and the period of performance 

can last up to 9 months. States, U.S. territories, and tribes are eligible to apply for the RSP. The RSP 

application packet must include the following required documentation, which can be found on the 

CCP Online Toolkit (https://www.samhsa.gov/dtac/ccp-toolkit/apply-funding/regular-servicesprogram-rsp): 

• RSP Application

• Request for Federal Assistance—SF–424

A federal form OMB requires for grant applications. All states, territories or tribes that apply for

CCP funds must submit a completed SF–424 signed by the authorized representative of or head

of the state mental health authority (SMHA) or tribal chief executive.

• Budget Information: Non-Construction Programs—SF–424A

A federal form OMB requires for grant applications. Complete "Section B—Budget Categories,"

Column (1) only for the total CCP budget.

• Budget Narrative

The budget narrative should include a detailed justification for all cost categories requested in

the SF-424A. Refer to the Appendix Section for additional instructions on completing the budget

narrative.

• Disclosure of Lobbying Activities—SF–LLL

A required form for the CCP RSP. The state, territory, or tribe may indicate "N/A" on the form if

it is not applicable.

• Project/Performance Site Locations

A federal form required for the CCP RSP. The state, territory, or tribe should complete a form

for each site where providers will perform project work.

Instructions for Submission of the RSP Application Packet

The state, territory, or tribe must submit the RSP application packet to the FEMA HQ Program 

Specialist; the Human Services IA Specialist, at the JFO; and the SAMHSA Project Officer no later than 

60 days from the declaration date. If the JFO has demobilized, the state, territory, or tribe should email 

the application to the assigned FEMA Regional Office Program Specialist and mail the original copy of 

the application to the FEMA HQ Program Specialist. In order to expedite the review process, it is helpful 

if the state, territory, or tribe submits an electronic copy of the application to the JFO/Region and 

SAMHSA federal staff. The federal staff will review the application to ensure all the required 

documentation meets minimum eligibility requirements per 44 C.F.R. § 206.171 and the General Terms 

and Conditions outlined in 2 C.F.R. § 200.210.
CCP Guidance, Version 5.3 | Page 23

The FEMA program specialists and/or the SAMHSA Project Officer are available to answer any questions 

pertaining to the RSP application requirements.

General Provisions

Conflict of Interest

To eliminate and reduce the impact of conflicts of interest in the sub-award process, recipients and 

pass-through entities must follow their own policies and procedures regarding the elimination or

reduction of conflicts of interest when making sub-awards. Recipients and pass-through entities are also 

required to follow any applicable state, local, or tribal statutes or regulations governing conflicts of

interest in the making of sub-awards.

The recipient or pass-through entity must disclose to FEMA in writing any real or potential conflict of 

interest, as defined by the federal, state, local, or tribal statutes or regulations or their own existing 

policies that may arise during the administration of the federal award.

For the ISP, recipients and pass-through entities must disclose any real or potential conflicts to the 

assigned FEMA JFO or FEMA Regional Program Specialist (in the event the JFO is demobilized) within 15 

days of learning of the conflict of interest.

For the RSP, recipients and pass-through entities must disclose any real or potential conflicts to the 

assigned FEMA Program Specialist at FEMA HQ and the SAMHSA Project Officer within 15 days of 

learning of the conflict of interest.

Similarly, sub-recipients in both ISP and RSP must disclose any real or potential conflict of interest to the 

pass-through entity as required by the recipient’s conflict of interest policies, or any applicable state, 

territory, or tribal statutes or regulations.

Conflicts of interest may arise during the process of FEMA’s making a federal award in situations where 

an employee, officer, or agent, any members of his or her immediate family, or his or her partner has a 

close personal relationship, a business relationship, or a professional relationship with a state, territory, 

or tribe, provider entity, recipient, sub-recipient, or FEMA employee.

Mandatory Disclosures

A recipient for a federal award must disclose all violations of federal criminal law involving fraud, 

bribery, or gratuity violations potentially affecting the federal award. Such disclosure shall be submitted 

in writing at the time of the application, or if the violation occurs after the time of application, no later 

than 15 days after confirmation that such a violation occurred.

Submit the disclosures (for the ISP) to the assigned FEMA JFO or FEMA Regional Office Program 

Specialist (in the event the JFO is demobilized).

Submit the disclosures (for the RSP) to the assigned FEMA HQ Program Specialist and the 

SAMHSA Project Officer.
CCP Guidance, Version 5.3 | Page 24

Performance Goal

For all CCP awards, by the midpoint of the performance period, the state, territory, or tribe will have 

provided CCP services to at least 40 percent of the population identified in the approved application. 

FEMA staff and the SAMHSA Project Officer will discuss progress toward performance goals with the 

state, territory, or tribe during monthly monitoring calls.

Section V: Post-award Requirements

The state, territory, or tribe is expected to comply with all conditions of award as detailed in the NOA 

letter. Conditions will include but are not limited to programmatic and fiscal reporting requirements and 

participation in ongoing federal monitoring activities, such as regular phone calls and site visits. The 

state, territory, or tribe is required to utilize the data collection toolkit approved by the OMB (OMB No. 

0930–0270). Additional requirements also may be included in the grant award letter.

Revision of Budget and Program Plans

The state, territory, or tribe is required to report deviations from the approved budget or project 

scope and request prior approval from FEMA and SAMHSA for budget and program plan revisions, in 

accordance with 2 C.F.R. § 200.308. States, territories, or tribes must request prior approval for the 

following:

• Change in scope or the objective of the project or program.

• Change in key personnel specified in the application or federal award.

• The disengagement from the project for more than 3 months, or 25 percent reduction in time

devoted to the project, by the approved project director or principal investigator.

• Unless described in the application and funded in the approved federal award, the subawarding, transferring, or contracting out of any work under a federal award. This provision

does not apply to the acquisition of supplies, material, equipment, or general support services.

• Incurrence of project costs 90 calendar days before the federal awarding agency makes the

federal award. The federal awarding agency is under no obligation to reimburse such costs if for

any reason the state, territory, or tribe does not receive a federal award or if the federal award

is less than anticipated and inadequate to cover such costs. (See also section on pre-award

costs.)

For one-time extensions, the state, territory, or tribe, must notify the federal awarding agency in writing 

with the supporting reasons and revised period of performance at least 10 calendar days before the end 

of the period of performance specified in the federal award. This one-time extension may not be 

exercised merely for using unobligated balances. (Refer to the terms and conditions of the NOA 

regarding extensions.)
CCP Guidance, Version 5.3 | Page 25

Extensions require prior federal awarding agency approval when any of the following is true:

• The terms and conditions of the federal award prohibit the extension.

• The extension requires additional federal funds.

• The extension involves any change in the approved scope of the project.

The federal awarding agency may, at its option, restrict the transfer of funds among direct cost 

categories or programs, functions, and activities for federal awards in which the federal share of the 

project exceeds the Simplified Acquisition Threshold and the cumulative amount of such transfers 

exceeds, or is expected to exceed, 10 percent of the total budget as last approved by the federal 

awarding agency. (Refer to Requests for Budget Adjustments for additional information.)

FEMA will only grant an extension of the period of performance if the state, territory, or tribe meets the 

requirements according to 44 C.F.R. § 206.171 (i), (ii), and (iii), which state that ISP funding may 

continue for up to an additional 30 days after the period of performance; when an RSP grant application 

has been submitted; and/or the Regional Administrator may grant an extension for the RSP only under 

extenuating circumstances for up to 30 days from the end of the period of performance.

Period of Performance

ISP Period of Performance

The period of performance for the ISP can last up to 60 days from the date of declaration as described in 

the federal award letter. A state, territory, or tribe may only be reimbursed for allowable costs incurred 

during the period of performance and any approved pre-award costs incurred before FEMA or the passthrough entity made the CCP award. However, the ISP can be extended an additional 30 days if the 

state, territory, or tribe is submitting an RSP application by day 60 from the date of declaration.

ISP Grant No-cost Administrative Extension (for up to 60 days)

All costs associated with finalizing the program and financial reports are allowable costs, as long as those 

costs are included in the approved ISP budget. In order for these costs to be covered, the state, territory, 

or tribe must ask for a no-cost administrative extension to the ISP grant period of performance. The 

state, territory, or tribe must submit the written extension request to their FEMA Region office prior to 

the end of the period of performance. The no-cost administrative extension can be granted for up to 60 

days in 30-day increments with FEMA approval.

Any programmatic or service activities (not related to the ISP final report) conducted after the period of 

performance will not be funded under the CCP grant. Any extension granted for the ISP once the RSP is 

awarded is only for work associated with finalizing the program and financial reports of providers to the 

grantees.
CCP Guidance, Version 5.3 | Page 26

RSP Period of Performance 

The period of performance for the RSP can last up to 9 months from the NOA. A state, territory, or tribe 

may only be reimbursed for allowable costs incurred during the period of performance. All costs 

associated with finalizing the program and financial reports are allowable costs, as long as those costs 

are included in the approved RSP budget.

Any programmatic or service activities (not related to the RSP closeout) conducted after the period of 

performance will not be funded under the CCP grant. 

When a state, territory, or tribe provides a sub-award to a sub-recipient, the state, territory, or tribe 

must include the start and end dates of the period of performance in the sub-award document. See 2 

C.F.R. § 200.77.

An extension of the period of performance (for the ISP and RSP) will be considered in accordance with 44 

C.F.R. § 206.171 (f)(4) and 44 C.F.R. § 206.171 (g)(4), respectively.

Procurement Requirements Under a Federal Award

The state, territory, or tribe shall ensure that the process of soliciting CCP services is fair and 

transparent. States must follow the same policies and procedures when procuring property and services 

under a federal award that they follow for procurement from nonfederal funds. The state must ensure 

that any contract provisions as required by 2 C.F.R. § 200.326 Contract provisions are included on all 

purchase orders or contracts that draw from federal funds. All other states, territories, or tribes, 

including subrecipients of a state, will follow the General procurement standards as required by 2 C.F.R. 

§ 200.318 through § 200.326.

Reporting (Programmatic and Fiscal Requirements)

During the ISP period of performance, the state, territory, or tribe must notify the Human Services IA 

Specialist and the SAMHSA Project Officer, no later than 45 days from the date of declaration, if they are 

planning to submit an application for the RSP grant. Part II of the RSP application titled “Response 

Activities From Date of Incident” should include a brief description of crisis counseling activities from the 

date of the disaster incident. The RSP application is due 60 days from the date of declaration. If the 

state, territory, or tribe is not planning to submit an RSP application, the final ISP programmatic and 

fiscal reports are due 120 days from the end of the ISP period of performance end date. Please refer to 

the CCP Reporting page (https://www.samhsa.gov/dtac/ccp-toolkit/ccp-reporting) of the CCP Online 

Toolkit for templates for ISP and other CCP reports. (Refer to Closeout and Retention Requirements for 

Records section for further details on closeout requirements for theISP.)
CCP Guidance, Version 5.3 | Page 27

Quarterly progress reports are due 30 calendar days after the end of each 3-month reporting period

(refer to the NOA for specific due dates). The quarterly report must include a budget expenditure report 

for the state, territory, or tribe and any sub-recipients showing the following:

1. The approved budget

2. Costs incurred and obligated expenditures

3. Approved budget modifications

4. Remaining balance of unspent funds

Specific information will be provided by the SAMHSA Project Officer and reflected in a subsequent 

programmatic award letter.

A final program report is due 120 calendar days after the end of the project period. For the RSP grant, 

grantees should note that all funds must be drawn down from the Payment Management System (PMS) 

within 120 days of the end of the project period because the account will close. A Federal Financial 

Report (SF 425) and a Tangible Personal Property Report (SF-428 and SF-428-B) must be submitted with 

the final program report.

To submit the quarterly and final reports, complete the following steps:

1. Submit the report via electronic Research Administration (eRA) Commons using the following

link: https://era.nih.gov.

2. Submit the report via email directly to the FEMA HQ Program Specialist, the JFO Specialist (or

Regional Specialist if the JFO is demobilized), and the SAMHSA Project Officer.

States, territories, and tribes can learn more about reporting through eRA Commons and other reporting 

requirements at https://www.samhsa.gov/grants/grants-training-materials. Information about registering 

in eRA Commons is available at https://www.samhsa.gov/grants/applying/registration-requirements. 

Additional training videos about the system are available through eRA at https://era.nih.gov/eratraining/samhsa-videos.htm?q=era_training/samhsa_videos.cfm. 

The report should be consistent with the cost categories and budget line items listed in the approved 

budget. If only a portion of award funding is disbursed at the start of the RSP, the state, territory, or 

tribe must submit a letter of request for the second allotment of funds with the first quarterly RSP 

report.

Sub-recipient Monitoring and Management

Determining Sub-recipient or Contractor Classification

The state, territory, or tribe may concurrently receive federal awards as a recipient, a sub-recipient, 

and a contractor, depending on the substance of its agreements with federal awarding agencies and 

pass-through entities. Therefore, a pass-through entity must make case-by-case determinations about 

whether each agreement it makes for the disbursement of federal program funds casts the party 

receiving the funds in the role of a sub-recipient or a contractor.
CCP Guidance, Version 5.3 | Page 28

A sub-award has the purpose of carrying out a portion of a federal award and creates a federal 

assistance relationship. When the state, territory, or tribe does the following, it may be receiving 

a federal award as a sub-recipient:

• Determines who is eligible to receive what federal assistance.

• Has its performance measured in relation to whether objectives of a federal program weremet.

• Has responsibility for programmatic decision-making.

• Is responsible for adherence to applicable federal program requirements specified in the federal

award.

• Uses the federal funds, in accordance with its agreement, to carry out a program for a

public purpose specified in authorizing statute, as opposed to providing goods or services

for the benefit of the pass-through entity.

Monitoring and Management

Pass-through entities or states, territories, or tribes have a responsibility to manage and monitor any 

sub-awards that are made under a federal award. Pass-through entities must identify to the subrecipient that the state, territory, or tribe is receiving a sub-award from a federal award. The following 

information must be provided to the sub-recipient at the time the sub-award is given, and any 

modifications to the sub-grant must also be provided if any of the data change:

i. Federal Award Identification.

ii. The sub-recipient name.

iii. Sub-recipient unique entity identifier.

iv. Federal Award Identification Number. For the CCP this will be the Presidential disaster

declaration number.

v. Federal award date. The disaster declaration date is the federal award date for a CCP.

vi. Sub-award period of performance.

vii. Amount of federal funds that are obligated by this action (award ormodification).

viii. Total federal funds obligated under the federal award to the sub-recipient.

ix. Total amount of the federal award that the pass-through entity received.

x. Federal award project description.

xi. Name of the awarding federal agency, pass-through entity, and contact information for the

pass-through agency’s awarding official.

xii. The Catalog of Federal Domestic Assistance (CFDA) number and name. The pass-through entity

must identify the dollar amount made available under each federal award and the CFDA number

at the time of disbursement.
CCP Guidance, Version 5.3 | Page 29

xiii. Identification of whether the award is research & development (R&D). The CCP is not an R&D

program.

xiv. Indirect cost rate for the federal award. The CCP does not permit the charging of indirect costs

to the grant award. Please see Indirect Costs for additional information.

In addition to the information listed above that is required to be included in any sub-grants awarded 

using federal funds, the pass-through entity must ensure that requirements imposed on the subrecipient are used in accordance with federal statutes, regulations, and the terms and conditions of the 

federal award. The pass-through entity, in its effort to meet its responsibilities to the federal awarding 

agency, may incorporate additional requirements including identification of any required financial and 

performance reports. The requirement that the pass-through entity and auditors have access to a subrecipient’s records and financial statements necessary for the pass-through entity to meet the 

requirements of the federal award must be included in any sub-grants made using federal funds.

Appropriate terms and conditions concerning the closeout of the sub-award must be included in the 

requirements of the sub-grant.

Pass-through entities must monitor the activities of the sub-recipient through the life of the federal 

grant to ensure that the sub-award is used for authorized purposes, in compliance with federal statutes, 

regulations, and the terms and conditions of the sub-award. Sub-grant monitoring allows from the 

review of performance to help ensure performance goals are achieved. The pass-through entity should 

evaluate each sub-recipient’s risk of noncompliance with federal statutes, regulations, and the terms

and conditions of the sub-award for determining the appropriate sub-recipient monitoring activities. 

Sub-recipient monitoring must include the following:

• Reviewing financial and performance reports required by the pass-through

• Following up on deficiencies identified pertaining to the federal, and timely and appropriate,

actions by the sub-recipient

• Making issue management decisions for audit findings pertaining to the federal award

provided to the sub-recipient from the pass-through entity, if required

Remedies for Noncompliance and Specific Conditions

FEMA or SAMHSA may apply specific award conditions, as outlined in 2 C.F.R. § 200.207, if it is 

necessary to address a risk posed by a state, territory, or tribe or recipient, including, but not limited 

to, a state’s, territory’s, or tribe’s history of failing to comply with the terms of a federal award or 

failure to meet expected performance goals. These specific conditions may include, but are not limited 

to, requiring technical or management assistance, additional financial or programmatic reports and 

project monitoring, and payments as reimbursements rather than advance payments.

If those additional conditions do not remedy a recipient’s non-compliance, additional remedies are 

available, including these:
CCP Guidance, Version 5.3 | Page 30

• Temporarily withholding cash payments

• Disallowing costs

• Wholly or partially suspending or terminating the award

• Suspension or debarment proceedings

• Withholding further federal awards for the project or program

• Any other remedies legally available

Termination

The federal award may be terminated in whole or part by these agencies and entities, under the 

following conditions:

• By FEMA or the pass‐through entity, if a state, territory, or tribe fails to comply with the

terms and conditions of a federal award.

• By FEMA or the pass‐through entity for cause.

• By FEMA or the pass‐through entity with the consent of the state, territory, or tribe, in which

case the two parties must agree upon the termination conditions, including the effective date

and, in the case of partial termination, the portion to be terminated.

• By the state, territory, or tribe upon sending written notification to the federal awarding

agency or pass‐through entity setting forth the reasons for such termination, the effective

date, and, in the case of partial termination, the portion to be terminated. However, if FEMA or

the pass‐through entity determines in the case of partial termination that the reduced or

modified portion of the federal award or sub-award will not accomplish the purposes for which

the federal award was made, FEMA or the pass‐through entity may terminate the federal

award in its entirety.

For the ISP, the FEMA JFO or FEMA Regional Office (in the event that the JFO is demobilized) will provide 

written notice of termination.

For the RSP, FEMA HQ will make termination decisions in coordination with SAMHSA. FEMA HQ and 

SAMHSA will provide written notice of termination.

The pass-through entity must provide to the sub-recipient a notice of termination.

Opportunities to Object and Appeals of Application Decisions

The state, U.S. territory, or Indian tribal government may appeal the decision in accordance with 44 C.F.R.

§ 206.171(f)(5) and 44 C.F.R. § 206.171(g)(5), respectively. Appeal letters must be signed by the

Governor’s or Tribal Chief Executive’s Authorized Representative.
CCP Guidance, Version 5.3 | Page 31

Appeals of Remedies for Noncompliance

For the ISP, the state, U.S. territory, or Indian tribal government may submit a written appeal letter

(including supporting documentation), signed by the Governor’s or Tribal Chief Executive’s Authorized

Representative, to the Federal Coordinating Officer (FCO) or appropriate FEMA Regional Administrator 

(if the JFO has been demobilized) within 15 days of the date of notification of the remedial action.

For the RSP, the state, U.S. territory, or Indian tribal government may submit a written appeal letter 

(including supporting documentation), signed by the Governor’s or Tribal Chief Executive’s Authorized

Representative, to FEMA’s Assistance Administrator, Recovery, through FEMA HQ and SAMHSA program

staff, within 15 days of the date of notification of the remedial action.

Objections/Appeals of Decisions Regarding Allowable Costs

For the ISP, the state, U.S. territory, or Indian tribal government may submit a written appeal letter 

(including supporting documentation), signed by the Governor’s or Tribal Chief Executive’s Authorized

Representative, to the FCO or appropriate FEMA Regional Administrator (if the JFO has been

demobilized) within 15 days of the date of notification of the disallowed cost.

For the RSP, the state, U.S. territory, or Indian tribal government may submit a written appeal letter 

(including supporting documentation), signed by the Governor’s or Tribal Chief Executive’s Authorized

Representative, to FEMA’s Assistant Administrator, Recovery, through FEMA HQ and SAMHSA program

staff, within 15 days of the date of notification of the disallowed cost.

Objections/Appeals of Termination or Suspension

For the ISP, the state, U.S. territory, or Indian tribal government may submit a written appeal letter 

(including supporting documentation), signed by the Governor’s or Tribal Chief Executive’s Authorized

Representative, to the FCO or appropriate FEMA Regional Administrator (if the JFO has been

demobilized) within 15 days of the date of notification of the suspension or termination action.

For the RSP, the state, U.S. territory, or Indian tribal government may submit a written appeal letter

(including supporting documentation), signed by the Governor’s or Tribal Chief Executive’s Authorized

Representative, to FEMA’s Assistant Administrator, Recovery, through FEMA HQ and SAMHSA program

staff, within 15 days of the date of notification of the suspension or termination action.

Closeout and Retention Requirements for Records

FEMA will close out the federal award when FEMA and SAMHSA determine that all applicable

administrative actions and all required work of the federal award are completed by the state,

territory, or tribe. The recipient, or pass-through entity if there is a sub-award, must submit all closeout 

reports for the CCP no later than 120 days after the end of the CCP’s period of performance, pursuant 

to the following: 

ISP

The final ISP program narrative and fiscal report (Federal Financial Report [FFR] SF-425) is due to the 

Regional Administrator via the Human Services IA Specialist at the JFO, no later than 120 calendar days 

after the last day of ISP funding. The state, territory, or tribe must liquidate all obligated balances, and
CCP Guidance, Version 5.3 | Page 32

show the exact balance of funds and total expenditures, which must be consistent with the line-item

report. The final SF-425 must show the total federal award amount, total federal expenditures, and the

unobligated balance. The reported total federal expenditures reflected on the SF-425 report must be 

consistent with the line-item expenditures reflected in the program report.

If the JFO is demobilized at the time the reports are due, submit them to the assigned FEMA Regional

Office Program Specialist. The Human Services IA Specialist at the JFO can answer any questions

regarding the requirements for the final program narrative and fiscal ISP reports.

RSP 

An SF-425 is due no later than 120 calendar days after the project period is complete. This report should 

include a final expenditure report showing expenditures of funds by category and budget line for each

sub-recipient listed in the approved budget. The final SF-425 must show the total federal award amount,

total federal expenditures, and the unobligated balance.

Final closeout documents must be submitted via eRA Commons and sent via email to the FEMA HQ

Program Specialist, the JFO Specialist (or Regional Specialist if the JFO is demobilized), and the

SAMHSA Project Officer. 

The SF-425 is required on an annual basis and should reflect only the following:

• Cumulative actual federal funds authorized and disbursed

• Any nonfederal matching funds, if identified in the Funding Opportunity Announcement

• Unliquidated obligations incurred

• The unobligated balance of the federal funds for the award

• Program income generated during the timeframe covered by the report

For further guidance to complete the SF-425, refer to the following website:

https://www.samhsa.gov/grants/grants-management/reporting-requirements. 

All financial reporting for recipients of HHS grants and cooperative agreements will be consolidated 

through the Payment Management System (PMS). The SF-425 initiative ensures all financial data is 

reported consistently through one source; shares reconciled financial data to the HHS grants management 

systems; assists with timely financial monitoring and grant closeout; and reduces expired award payments.

Note: States, territories, and tribes will use PMS to report all financial expenditures, as well as to 

draw down funds. They will continue to use eRA Commons for all other grant-related matters, 

including submitting progress reports, requesting post-award amendments, and accessing grant 

documents such as the NOA.

Note: States, territories, and tribes can connect seamlessly from the eRA Commons FFR Module to 

PMS by clicking the “Manage FFR” button on the Search for FFR page.
CCP Guidance, Version 5.3 | Page 33

States, territories, and tribes that do not have access to PMS may using the following instructions to 

update user permissions: https://pms.psc.gov/grant-recipients/access-newuser.html.

States, territories, and tribes that currently have access to PMS and are submitting or certifying the FFR 

on behalf of their organization should log in and update their permissions to request access to the FFR 

Module using the following instructions: https://pms.psc.gov/grant-recipients/access-changes.html.

For further guidance on how to submit an FFR via PMS, refer to the following instructions while logged 

into PMS: https://pmsapp.psc.gov/pms/app/help/ffr/ffr-grantee-instructions.html.

States, territories, and tribes with questions about setting up a PMS account can contact the PMS Help 

Desk at pmssupport@psc.hhs.gov or 1–877–614–5533.

For additional closeout instructions, refer to https://www.samhsa.gov/grants/grants-management/grantcloseout. 

When the state, territory, or tribe is notified in writing by FEMA or SAMHSA, the cognizant agency for 

audit, oversight agency for audit, cognizant agency for indirect costs, or pass-through entity to extend 

the retention period, the entity must keep records as indicated in the notification, which may be longer 

than 3 years. Records for real property and equipment acquired with federal funds must be retained for 

3 years after disposition.

FEMA, SAMHSA, and the pass-through entity retain the right to disallow costs and recover funds based 

on a later audit or other review after closeout.

All states, territories, or tribes are required to comply with the Cost Principles and Audit Requirements 

as outlined in 2 C.F.R. Part 200.

Section VI: Budget and Fiscal Management

The Influence of the CCP Model (Fundable Costs)

The key concepts of the CCP model are important for effective fiscal management. These concepts 

define what is fundable and determine the state’s, territory’s, or tribe’s fiscal approach. (For more 

information on the CCP model, see Section II of this document.)

The CCP’s strengths-based, practical approach to behavioral health determines which services are 

fundable. As a disaster relief program that provides outreach services to a large number of survivors in a 

limited period of time, the CCP has a very specific list of fundable expenses, which include the following:

Salaries and wages: Salary compensation must be reasonable in amount and in alignment with local 

prevailing rates for the position funded.

Fringe benefits: Fringe benefits may be charged directly to the grant. Claimed costs must be reasonable 

and conform to established policies for the state, territory, or tribe. Use of a pre-established provisional 
CCP Guidance, Version 5.3 | Page 34

rate requires allocation to total salary costs. Rates must be adjusted to actuals at the year-end and rates 

should be reviewed at least once annually.

Consultant costs: Consultant costs must be supported by a consulting agreement that documents the 

service to be performed, cost, and applicable time periods. Documentation to support need, reasonable 

rates, adherence to the FEMA training policy, and consultant expertise must be maintained, together 

with evidence of work product.

Equipment: The state, territory, or tribe obtains title to equipment acquired under the CCP award and 

is subject to the conditions outlined in 2 C.F.R. § 200.313, including these requirements:

• To use the equipment for the authorized purposes of the project until funding for the project

ceases, or until the property is no longer needed for the purposes of the project

• To not encumber the property without approval of FEMA

• To use and dispose of the property in accordance with 2 C.F.R. § 200.313

Equipment acquired with a CCP award must be used in a manner consistent with the purposes of the 

CCP award and to benefit the beneficiaries of the CCP project.

Supplies: FEMA retains an interest in any unused supplies exceeding $5,000 in total aggregate value 

upon termination or completion of the CCP if they are not needed for any other federal award. The 

state, territory, or tribe must compensate FEMA for its share of the supplies in compliance with 2 

C.F.R. § 200.313 and 200.314.

As long as FEMA retains an interest in supplies, the state, territory, or tribe must not use the supplies 

to provide services to other organizations for a fee that is less than private companies charge for 

equivalent services.

Travel: Travel must be preapproved and supported by travel expense reports detailing employee name, 

the reason for the trip, and itemized expenses claimed. Claimed costs should be charged according to a 

detailed travel policy that requires prior approval, complies with OMB cost principles, and provides 

expenditure limitations. Major items of expense (e.g., airfare, lodging) must be supported by receipts.

Other: The budget may identify costs that are unique to the disaster and area impacted but do not fall 

into one of the prescribed cost categories listed above. Costs must be supported by adequate 

documentation (invoices, receipts, etc.). Consult with the FEMA Specialist or SAMHSA Officer to 

determine which costs are allowable under this cost category.

Contractual costs: A state, territory, or tribe that is a state agency will follow its established policies and 

procedures used for procurements from nonfederal funds when procuring property and services under a 

federal award. All other states, territories, or tribes will follow the requirements in 2 C.F.R. § 200.318, 

General procurement standards, through § 200.326, Contract provisions. All states, territories, or tribes 

should review the procurement standards outlined in 2 C.F.R. § 200.317 through § 200.326.

(Please refer to the Appendix Section for a list of Non-fundable Expenses).
CCP Guidance, Version 5.3 | Page 35

The Budget Narrative

Each ISP and RSP budget narrative must justify the proposed budgets for the state, territory, or tribe 

and sub-recipients and each individual service provider budget. The narrative must provide a brief 

justification of the costs and an itemization for each line of the budgets. Instructions for developing the 

budget narrative are provided in the Appendix Section of this document.

Requests for Budget Adjustments

The state, territory, or tribe is expected to incorporate mechanisms for an ongoing needs assessment 

into the CCP and work with FEMA and the SAMHSA Project Officer to adjust program planning and 

implementation accordingly. Changes to the program plan based on the needs assessment may require 

that funding be moved from one line item to another. Changes to the program plan may require that 

funding be moved from one line item to another or from one provider to another. The state, territory, 

or tribe has the authority to move funds, up to a cumulative 10 percent of the total budget, from one 

line item to another without requesting approval.

Any budget adjustments that move a cumulative 11–24 percent of funds must be approved by FEMA or 

the SAMHSA Project Officer. Any budget adjustments that exceed a cumulative 25 percent of the total 

budget must be approved by FEMA or the SAMHSA Grants ManagementOfficer.

Budget adjustments or modifications should be discussed with FEMA/SAMHSA prior to submitting a 

request for additional funds. Use a Request for Budget Adjustment letter template available online at 

http://www.samhsa.gov/dtac/ccp-toolkit/ccp-reporting. 

ISP (Budget Adjustment): The JFO Specialist and the chain of command at the JFO (or FEMA Region if 

the JFO has demobilized) are responsible for approving any budget adjustments. The SAMHSA Project 

Officer will provide technical assistance regarding the steps and any required documentation to request 

a budget adjustment.

RSP (Budget Adjustment): The FEMA HQ Specialist, in coordination with the SAMHSA Project Officer, is 

responsible for providing technical support to the state, territory, or tribe regarding budget 

adjustments and approving any formal requests up to the 25 percent threshold. The SAMHSA Grants 

Management Officer is responsible for approving any requests that exceed a cumulative 25 percent of 

the total budget.

Pre-award Costs (ISP Phase)

Pre-award costs are those incurred prior to the effective date of the federal award directly pursuant to 

the negotiation and in anticipation of the federal award where such costs are necessary for efficient and 

timely performance of the scope of work. Such costs are allowable only to the extent that they would 

have been allowable if incurred after the date of the federal award and only with written approval of 

FEMA. Please coordinate with the JFO/Regional Specialist and FEMA HQ to determine if the preaward costs are allowable and in alignment with 2 C.F.R. § 200.458 and 2 C.F.R. § 200.209, and what 

documentation is required prior to incurring pre-award costs.
CCP Guidance, Version 5.3 | Page 36

The state, territory, or tribe may seek reimbursement for pre-award costs associated with crisis 

counseling services provided from the date of the disaster incident to the ISP application due date. The 

state, territory, or tribe must document the crisis counseling services provided and justify the costs.

Documentation should include the following:

• Types of crisis counseling services provided

• Location of service provision

• Types of staff who provided the services

• Hourly rates of staff who provided the services

• Number of hours that staff worked

• Types and number of disaster survivors who received services

The state, territory, or tribe may seek reimbursement only for crisis counseling services and not for 

any other type of behavioral health response. Crisis counseling services are typically provided during 

the immediate disaster response phase to survivors and their families, first responders, and other 

individuals directly affected by the disaster. Typical locations of service provision in the immediate 

disaster response include shelters, family assistance centers, homes, or other community settings.

Services often are provided by behavioral health agency staff, local behavioral health service provider 

staff, or members of disaster behavioral health response groups. Reimbursement for staff costs is 

allowable if it can be clearly demonstrated that the normal duties of the staff (if employed by the state, 

territory, or tribe during the disaster) were back-filled during the disaster response.

Indirect Costs

Indirect costs are those costs incurred for a common joint purpose that benefit more than one cost 

objective. These cannot be easily assignable to the cost objectives of the federal award that are 

benefitted from those activities. Indirect costs often include general administration, human resources, 

accounting, information technology, and security costs.

As a supplemental program, the CCP does not fund indirect costs. All costs chargeable to the federal 

award must be identified specifically with a particular cost objective such as activities of the federal 

award and be easily assigned to those activities.

For more information on indirect costs, see 2 C.F.R. Part 200, available online at 

https://www.ecfr.gov/cgi-bin/textidx?SID=87d9b71b1988d26e9341ff20a49b9d11&mc=true&tpl=/ecfrbrowse/Title02/2cfr200_main_02.t

pl. 

Cost Sharing, In-kind Resources, or Matching

The CCP does not require cost sharing or matching as a requirement of the federal award. Any third 

party in-kind contributions must meet these criteria:
CCP Guidance, Version 5.3 | Page 37

• They must be verifiable from the recipient’srecords.

• The contributions must not be included for any other federal award.

• They must be reasonable and necessary for the federal award.

• They must be allowable under 2 C.F.R. Subpart E: Cost Principles.

• They must not be paid by the Federal Government under another federal award except where

federal statute permits.

• They must be included in the current approved budget.

Regulations mandate that the state, territory, or tribe identify sources of in-kind contributions, as 

appropriate. Some examples of typical in-kind resources include personnel; office and meeting space, 

utilities, and equipment such as computers, printers, and mobile phones; advertising; and public service 

announcements. Community or other groups, such as voluntary organizations active in disaster or local 

faith-based organizations, may contribute in-kind resources as well. Examples of items donated by these 

groups include meals, refreshments for program-related meetings or support groups, toys, meeting 

space, and recreational items, and cash donations by the private sector.

Transfer of Funds

The funding processes for the ISP and the RSP are separate and distinct. FEMA and SAMHSA strongly 

advise the state, territory, or tribe to prepare for the transfer of funds by contacting the FEMA Human 

Services IA Specialist or SAMHSA Project Officer. Refer below for an explanation of each step involved in 

the transfer of funds for the ISP and RSP:

ISP

1. ISP funds are awarded by a grant from the FCO to the state, territory, or tribe. (If the JFO is

demobilized, the funds are awarded by the Regional Administrator.)

2. Prior to disbursement of funds by FEMA, the state, territory, or tribe, and the state emergency

management agency and/or the tribal agency designated to serve as the fiscal agent, must work

together to prepare the transfer of funds between their agencies.

3. The state, territory, or tribe is advised to consult with their fiscal staff and the contractor and/or

sub-recipient’s fiscal staff, if applicable, to ensure a mechanism is in place todraw down and

distribute funds at the local level.

4. FEMA advances all or part of the approved ISP funds to the state emergency management

agency or tribal designated fiscal agent. FEMA can obligate the funds within 48 hours pending

the approval of the application. FEMA utilizes SmartLink to disburse thefunds.

5. The state mental health authority or tribal designated fiscal agent transfers the funds to the

contractor and/or sub-recipient through customary processes.
CCP Guidance, Version 5.3 | Page 38

RSP

1. FEMA HQ transfers the RSP grant funds to SAMHSA.

2. SAMHSA awards the grant funds to the state, territory, or tribe, usually the state mental health

authority or the tribal designated fiscal agent. The RSP grant must adhere to HHS Public Health

Service grant regulations; 44 C.F.R. § 206.171; and Uniform Administrative Requirements, Cost

Principles, and Audit Requirements for Federal Awards from OMB: Subparts A–F Appendix III

(Supercircular) (2 C.F.R. Chapter I and Chapter II, Part 200, Subparts A–D).

3. The state, territory, or tribe is eligible to withdraw funds from PMS upon receipt of a NOA issued

by the SAMHSA Division of Grants Management.

4. CCP funding can be awarded in full or in allotments. The SAMHSA Project Officer will work with

the state, territory, or tribe to determine the best option based on risk assessment factors.

Appendix Section

Appendix A. Definitions

Contract: A legal instrument by which a state, territory, or tribe purchases property or services needed 

to carry out the project or program under a federal award. The term as used in this part does not include 

a legal instrument, even if the state, territory, or tribe considers it a contract, when the substance of the 

transaction meets the definition of a federal award orsub-award.

Federal award: The federal financial assistance that a state, territory, or tribe receives directly from 

a federal awarding agency or indirectly from a pass-through entity.

Federal awarding agency: The federal agency that provides a federal award directly to a state, 

territory, or tribe.

Nonfederal entity: A state, local government, Indian tribe, institution of higher education, or 

nonprofit organization that carries out a federal award as a nonfederal entity or sub-recipient.

Pass-through entity: A state, territory, or tribe that provides a sub-award to a sub-recipient to carry 

out part of a federal program.

Performance goal: A target level of performance expressed as a tangible, measurable objective, against 

which actual achievement can be compared, including a goal expressed as a quantitative standard, 

value, or rate. In some instances (e.g., discretionary research awards), this may be limited to the 

requirement to submit technical performance reports (to be evaluated in accordance with agency 

policy).
CCP Guidance, Version 5.3 | Page 39

Recipient: A state, territory, or tribe that receives a federal award directly from a federal 

awarding agency to carry out an activity under a federal program. The term recipient does not 

include sub-recipients. See also § 200.69, Nonfederal entity.

Sub-award: An award provided by a pass-through entity to a sub-recipient for the sub-recipient to carry 

out part of a federal award received by the pass-through entity. It does not include payments to a

contractor or payments to an individual that is a beneficiary of a federal program. A sub-award may be 

provided through any form of legal agreement, including an agreement that the pass-through entity 

considers a contract.

Sub-recipient: A state, territory, or tribe that receives a sub-award from a pass-through entity to 

carry out part of a federal program; does not include an individual that is a beneficiary of such 

program.

For disasters declared prior to December 26, 2014, the following chart can be referenced to crosswalk 

terminology from the previous Administrative Requirements (44 C.F.R. Part 13) and the Cost Principles 

(2 C.F.R. Parts 225 and 230) that are applicable to those awards.

Previous

Terminology

Adopted

Terminology

Subgrant Subaward

Subgrantee Sub-recipient

Grant Federal award

Grantee Recipient

Supplant: States, territories, or tribes may not use CCP funds to take the place of or serve as a 

substitute for previously existing state or local activities.
CCP Guidance, Version 5.3 | Page 40

Appendix B: CCP Services, Positions, and Job Descriptions

Primary CCP Services

Brief Educational or Supportive Contact

● Lasts less than 15 minutes.

● Provides basic educational or emotional support to individuals or groups related to disaster

reactions.

Individual Crisis Counseling

● Lasts longer than 15 minutes.

● Helps disaster survivors understand their situation and reactions, review their options, and

connect with other individuals and agencies that may assistthem.

● Includes working with an individual or family unit.

● Involves staff who listen actively and provide emotional support, identify and teach coping

skills and stress management techniques, and help prioritize needs for the survivors.

Group Crisis Counseling

● Provides group members with emotional support and helps them to understand their

situation and reactions and to review their options.

● Involves group activities that are appropriate to the age category of participants and can be

on emotional or practical concerns.

● Assists group members with referral to other services and provides them with skills to cope

with their situation and reactions.

● Refers to situations in which group members do most of the talking.

Public Education

● Provides general educational information to survivors on disaster services available and key

concepts of disaster behavioral health.

● May involve public speaking at community forums, in-service group meetings, and local

government meetings.

● Refers to situations in which the crisis counselor does most of the talking and is presenting

information.

Assessment, Referral, and Resource Linkage

● Assessment determines the need for referral to additional services, such as disaster relief or

traditional mental health or substance use treatment.

● Referral directs survivors to formal mental health or substance use treatment if they are

experiencing severe reactions.

● Referral may also direct survivors to other disaster relief resources that meet a wide range of

physical, structural, or economic needs.

● Resource linkage connects disaster survivors with behavioral health services, disaster

recovery resources, and tangible goods.

Community Networking and Support

● Networking allows for stronger community coalitions to promote recovery and access to

services.

● Crisis counselors may be available at community events to provide a compassionate presence

and crisis counseling services.

These services involve coordinating with school personnel, community centers, community leaders, 

and faith-based organizations in order to provide crisis counseling services.
CCP Guidance, Version 5.3 | Page 41

Secondary CCP Services

Distribution of Educational Materials

● Materials distributed typically include flyers, brochures, tip sheets, guidance documents, or

website content.

● Materials may cover topics such as basic disaster information, key concepts of disaster

behavioral health, disaster reactions and coping skills, and individual or community

recovery orresilience.

● This type of service should involve materials that address the needs of special populations

and are available in multiple languages.

● This service does not include distribution of data collection tools, such as the Participant

Feedback Survey and Service Provider Feedback Form.

Media and Public Service Announcements (PSAs)

● Media and PSA services include activities and public messaging conducted in partnership

with media, state and local governments, charitable organizations, or other community

brokers ofinformation.

● Media and PSA activities and messaging are designed to reach a large number of people in

order to promote access to CCP services or to provide basic information concerning

disaster, key concepts of disaster behavioral health, disaster reactions and coping skills,

and individual or community recovery and resilience.

● This service type involves a range of venues, such as media interviews with CCP

spokespeople; television or radio PSAs; use of websites or email; and advertising and social

media, such as Facebook and Twitter.
CCP Guidance, Version 5.3 | Page 42

Typical CCP Positions and Job Descriptions

State CCP Program Manager/Director

● Acts as lead coordinator and manager for the state crisis counseling response and is the main

point of contact for FEMA and SAMHSA.

● Oversees staffing, training, reporting, data analysis, and fiscal monitoring.

● Works with other disaster service agencies to ensure coordination of behavioral health

response and no duplication of services.

● Conducts regular site visits to providers and accompanies crisis counselors as anobserver to

ensure appropriate services are delivered.

● Represents CCP at high-level meetings within the community and state leadershipmeetings.

● In some cases, often with smaller CCPs, may be the State Disaster Behavioral Health

Coordinator (i.e., the individual identified by the state mental health authority as responsible

for state disaster behavioral health preparedness and response).

Team Leader

● Leads a team of crisis counselors in the field.

● Is usually an experienced disaster behavioral health worker or behavioral health professional

who supervises paraprofessional or less experienced crisis counselors.

● May help to assess people who require traditional mental health or substance usetreatment.

● May be one of several team leads on staff with a provider, depending on the size and scope of

the disaster.

● Trains, debriefs, and provides supervision for the crisis counselors.

● Uses data to conduct ongoing needs assessment.

● Coordinates data collection activities and reviews data form submissions for accuracy.

● If the program is using the mobile application, the team leader reviews and accepts or rejects

forms submitted through the mobile application.

● May use the mobile application to complete data forms.

● Provides coordination and oversight of the crisis counselors’ plans ofservice.

● May perform crisis counseling as needed.

Crisis Counselor

● Works with individuals, families, and groups to provide outreach, emotional support,

individual and group crisis counseling, public education, and referrals whenneeded.

● Is synonymous with term “outreach worker.”

● Represents program in the community and networks with other agencies and partners to

ensure needs of survivors are met.

● Provides presentations to community groups on disaster reactions, coping skills, stress

management, and the CCP.

● May use the mobile application to complete data forms.

Data/Evaluation Specialist

● Implements and oversees the CCP data collection activities and is the point of contact for

entering data into the CCP web-based system and the use of the mobile application.

● Collects and analyzes data, collects Participant Feedback Surveys and Service Provider

Feedback Surveys, reports data to FEMA and SAMHSA’s CMHS, and provides data analysis and

feedback to state and provider leadership staff to improve program services.

● Trains CCP staff on data collection forms and the mobile application if used. Works closely

with program manager to ensure accuracy of completed forms.

● Supports program manager and team leaders.
CCP Guidance, Version 5.3 | Page 43

Typical CCP Positions and Job Descriptions

Administrative Assistant

● Provides administrative support including but not limited to collecting and verifying

timesheets, collecting data forms, ordering supplies, answering office phone calls,

photocopying, faxing, and emailing of CCP information.

● Schedules events and related training activities.

Consultant/Trainer

● Hired through the CCP to train program staff or provide consultation to programleadership.

● Should be experienced in the CCP model, training topics, and/or grant writing.

● Must be approved by FEMA and CMHS to conduct the trainings specified by the state.

Fiscal Specialist

● Tracks and monitors funds, reviews and submits requests for program budget modifications

to FEMA and CMHS, and prepares fiscal reports.

● Performs quality control and oversight of program purchases.

● Works closely with CCP leadership staff to ensure that funds are accessible to providers and

are being appropriately used for crisis counseling services.

● Ensures all contracts are appropriate and compliant with state and federalmandates.

● May be responsible for processing timesheets and payroll.

Data Entry Assistant

● Implements and oversees the CCP data collection activities and is the point of contact for

entering data into the CCP web-based system.

● Supports program manager, data/evaluation specialist, and team leaders.

IT Support Specialist

● Works at the state/territory/tribe and/or provider level, depending on the size and structure

of the program.

● Assists CCP staff in all aspects of use of the mobile application.

o Helps download the application to mobile devices.

o Assists the team in uploading forms.

o Works with the team when logging into the mobile application for the firsttime.

o Provides IT support and troubleshooting throughout the entire CCP.
CCP Guidance, Version 5.3 | Page 44

Additional Positions Encountered in the CCP

Provider Project Manager

● Often found in larger provider staffing plans.

● Acts as lead coordinator for the crisis counseling response at the provider agency and is the

main point of contact for the State CCP Program Manager/Director.

● Oversees staffing, training, reporting, and fiscal monitoring for the provider.

● Sometimes serves as a team leader.

Community Liaison/Resource Linkage Coordinator

● Facilitates entry on behalf of CCP into local communities and works withcommunity

organizations.

● May serve as a cultural broker and as liaison between the CCP and a cultural group.

● Provides intensive resource linkage for survivors struggling to access disaster reliefassistance.

● Networks with community resources to identify referral mechanisms.

● Provides training to crisis counselors and other service providers regarding referral resources

and mechanisms.

Media Liaison

● Establishes and maintains cooperative relationships with representatives of business,

community, media, public interest, and school groups.

● Writes, edits, and coordinates the design for internal and external CCP publications, the

media, the internet, social media, marketing collateral, and other relatedmaterials.

● Assists in coordination of events, activities, and branding related to the promotion of theCCP.

● Serves as a media liaison for general and routine media inquiries and pitches in conjunction

with project leadership.

Child Specialist

● Establishes and maintains cooperative relationships with representatives of community, day

care, faith-based, and school groups.

● Provides crisis counseling services for children and adolescents, parent education, and

supportive family services focused on grief and loss.

● Promotes resilience and successful coping techniques using individual, group, and family

evidence-based strategies.

● Provides culturally sensitive education and training about the effects of trauma on young

children and their families.

● Delivers training that includes reactions to disasters, creating safe environments, creating

classroom communities, and healthy responses to life-changing events.
CCP Guidance, Version 5.3 | Page 45

Appendix C: Instructions for the Budget Narrative

Budget 

Category

INSTRUCTIONS FOR THE BUDGET NARRATIVE

Key Points for Each Line Item

Salaries and 

Wages

 Within the budget narrative table, list each position type and all relevant details, including the corresponding number of

full-time equivalents (FTEs), hours, weeks, rates of pay, and total cost.

 Indicate how rates of pay were determined. List sources used to make such determinations (e.g., U.S. Department of

Labor).

 If rates differ from usual and customary rates for comparable positions in the local area, justify why pay ratesdiffer.

Fringe 

Benefits

 Provide the rate of fringe for each provider.

 Indicate whether the fringe benefits are based on usual and customary rates in the local area.

 If the fringe rates are not comparable to the usual and customary rates for the local area, describe why the fringe rates

differ.

 List individual items that constitute the fringe benefits package.

Travel  Provide the following list of travel expenses for program staff: number of estimated miles per week, number of weeks,

and established state mileage rate.

 Provide details on in-state airfare costs, lodging, and per diem rates.

 Include consultant or trainer travel costs in the consultants/trainers category.

Equipment  Itemize equipment and provide justification of equipment costs.

 Include expenses less than $5,000 (e.g., mobile phones or computers) in the supplies category.

Note: This line is reserved for individual equipment purchases exceeding $5,000.

Supplies  Itemize all supplies not normally stocked in a typical business office or covered by the negotiated indirect rate agreement

(e.g., branded staff shirts, mobile phones, computers, pagers).

 Include a justification for each item.

Consultants/ 

Trainers

 Itemize all consultant and trainer costs by identifying person, role, daily rate, and number of days.

 Identify the type of consultation or training that the individuals are providing (e.g., CCP Core Content Training,

supplemental trainings, grant writer).

 Provide a breakdown of transportation, lodging, and per diem rates (some travel costs may need to beestimated).

Note: Ensure all compensation complies with FEMA policy and established rates of pay.
CCP Guidance, Version 5.3 | Page 46

Budget 

Category

INSTRUCTIONS FOR THE BUDGET NARRATIVE

Key Points for Each Line Item

Media/Public 

Information

 Provide a breakdown of expenses for pamphlets, flyers, educational materials, advertising expenses for staff

recruitment, and educational media and public information efforts (e.g., 10,000 pamphlets x $0.25 per pamphlet =

$2,500).

Note: The state is encouraged to seek donated or matching media and marketing activities.

Provider/ 

Contractual 

Costs

 Itemize all provider costs and any other contractual costs the state will use in the CCP grant. This should include all

salaries, fringe, travel, per diem, and training costs associated with the program. Costs must be justified in the budget

narrative.

Other  List all other costs, and provide justification for these costs.

Note: Ensure all other costs are directly supported within the plan of services.

Note: As a supplemental program, the CCP does not fund a line-item category for indirect costs. All charges must be direct.
CCP Guidance, Version 5.3 | Page 47

Budget Category Fundable Expenses Nonfundable Expenses Typical In-kind Contributions

Salaries and 

Wages

● Salaries and wages for typical CCP

positions:

– Crisis Counselor

– Team Leader (Supervisor)

– Administrative Assistant

– Data Evaluation Specialist

– Consultant/Trainer (listed in

personnel only if a direct state or

provider employee)

– Fiscal Specialist

– State CCP Program

Manager/Director

– Provider Project Manager

– Community Liaison/Resource

Linkage Coordinator

– Media Liaison

– Child Specialist

● Longer term, more formal mental

health services to existing or new

clients, and mental health

professionals providing these

services including diagnosis and

therapy

● Longer term, more formal

substance use treatment to

existing or new clients, and

paraprofessionals providing these

services

● Advocacy

● Formal critical incident stress

debriefing (CISD) services or critical

incident stress management (CISM)

training

● Reimbursement for uncollected

revenue (e.g., if mental health

workers respond to the disaster

and it results in fewer Medicaid

billings, the state will not be

reimbursed for these lost Medicaid

billings)

● Supplanting of existing state or

provider positions

● Salaries and wages of existing

state and local staff, such as

the State Disaster Behavioral

Health Coordinator and local

area provider agency

managers who dedicate a

percentage of time to the CCP

in addition to their existing

duties.

Fringe Benefits ● Fringe benefit costs at the usual and

customary fringe benefit rate for state

and local providers

● Fringe benefit costs above the

customary fringe benefit rate for

temporary state and local provider

staff
CCP Guidance, Version 5.3 | Page 48

Budget Category Fundable Expenses Nonfundable Expenses Typical In-kind Contributions

Travel ● Mileage reimbursement for crisis

counselors to travel to deliver services

in survivors’ homes, meet with

community groups or agency

personnel, and conduct or receive

training

● The standard motor-pool cost if state

cars are used

● Out-of-state travel for CCP

personnel

● Transportation for survivors

● Rental or leasing of vehicles, unless

unusual circumstances indicate

that the use of personal vehicles is

not a reasonable option

● The state may offer to use

the motor-pool as an in-kind

contribution.

Equipment ● Equipment purchases of more than

$5,000 per individual item

Consult with the FEMA and CMHS Project 

Officer prior to developing the budget for 

this category.

● Consult with the FEMA and CMHS

Project Officer for specific nonfundable expenses.

Consultants/ 

Trainers

● CMHS-approved, qualified consultants

used to provide technical assistance or

consultation to state and local project

staff on program development and

project management

● CMHS-approved, qualified trainers

used to provide standardized CCP

training or training concerning unique

disaster-related issues (e.g., cultural

competence, working with children,

working with special populations)

● Travel costs, lodging, and per diem for

consultants

For contracted consultants, the maximum 

FEMA reimbursement rate is $750 per day, 

which includes preparation, materials, and 

travel time.

● Consultants or trainers not

approved by CMHS

● Consultant charges exceeding $750

per day

● Conferences or workshops not

directly related to the project

● Out-of-state training

● Disaster preparedness training

● CISD or CISM training

● Costs and time associated

with the use of state and local

in-house consultants
CCP Guidance, Version 5.3 | Page 49

Budget Category Fundable Expenses Nonfundable Expenses Typical In-kind Contributions

Supplies ● Basic office equipment, such as

computers, mobile phones, printers,

pagers, fax machines, or photocopiers

● Food and beverages

● Refreshments for meetings and

trainings

● Medications

● Toys or playground items for

recreational programs

● Disaster kits

● Video cameras, video recording

equipment, televisions, and other

types of video production

equipment (see Media/Public

Information Efforts below)

● Use of existing equipment,

such as office furniture,

computers, fax machines,

printers, or photocopiers

● Food and beverages

● Toys and recreational items

Media/Public 

Information

● Advertisements to recruit crisis

counselors

● Educational materials, pamphlets, and

handouts

● Flyers or other materials to promote

access to CCP services

● Staff identification items, such as tshirts or name badges

● Media messaging and public service

announcements

● Duplication of appropriate existing

materials, such as FEMA and CMHS

disaster behavioral health materials,

should the state require more copies

of these materials than can be

provided

● Items or activities not included as

part of the grant application

program plan or not approved by

the FEMA and CMHS project

officers

● Disaster preparedness materials

● Expensive print, television, or radio

advertisements

● For print advertisements and

broadcast time, FEMA and

CMHS advise that programs

seek donations as a public

service for space and airtime

announcements. If this is not

possible, list these media

costs as a budget item, and

provide ample justification in

the narrative.
CCP Guidance, Version 5.3 | Page 50

Budget Category Fundable Expenses Nonfundable Expenses Typical In-kind Contributions

Video and multimedia product 

development may be funded only if it is 

carefully justified and the following three 

criteria are met:

● No comparable resource is available

from another CCP, any federal or state

agency, or any private entity.

● The state has provided a

comprehensive description of the

objectives and format of the product,

and has demonstrated the disaster

mental health expertise to develop a

quality product.

● The product can be completed to be

used as an educational or training tool

during the CCP.

Provider/ 

Contractual Costs

Provider costs and any other contractual 

costs must be itemized. The itemization 

should include costs associated with 

salaries, fringe, travel, per diem, and 

training. These costs must be justified in 

the budget narrative.

● Items or activities not included as

part of the grant application

program plan or not approved by

the FEMA and CMHS Project

Officers

● Transportation of survivors

● Mental health treatment

● Office space

● Additional trainings

● Equipment (copiers, printers,

fax)

● Human resources
CCP Guidance, Version 5.3 | Page 51

Budget Category Fundable Expenses Nonfundable Expenses Typical In-kind Contributions

Other The budget may identify costs that are 

unique to the disaster and area affected 

but do not fall into one of the prescribed 

categories.

Note: Costs must not be identified as 

miscellaneous (i.e., they must be 

described in detail). 

● Facility renovation, repair, or

construction

● Transportation for survivors

● Child care

● Case management

● Diagnostic testing

● Toys or recreational equipment or

activities

● Food and beverages

● Refreshments

● Video or multimedia recording

equipment

● Longer term, more formal mental

health services to existing or new

clients

● Medications

● Longer term, more formal

substance use services to existing

or new clients

● Advocacy

● Financial assistance forsurvivors

● Fundraising activities

● Disaster preparedness

Categories Typically Listed as Other

Other ● Minimal office space for the

management and administration

functions of the program when

donated space is not available

● Facility renovation, repair, or

construction

● Office space within the state

mental health authority and

CCP provider facilities

Rental Office 

Space

● Appropriate telephone and utility

costs for CCP operations when not

located within existing state mental

health authority or providerspace

● Telephone and utility charges not

directly related to CCP operations

● Utilities such as heat, water,

or electricity
CCP Guidance, Version 5.3 | Page 52

Budget Category Fundable Expenses Nonfundable Expenses Typical In-kind Contributions

Other: Telephone 

and Utilities

● Additional costs to conduct CCP

evaluation and data collection in

compliance with the Evaluating the

Reach, Quality, and Consistency of

Crisis Counseling Programs guidance

● Evaluation activities not in

compliance with the Evaluating the

Reach, Quality, and Consistency of

Crisis Counseling Programs

guidance

● More formal research activities

Required Supporting Documentation To Be Maintained by the CCP

Salaries and wages: Salary compensation must be reasonable in amount and supported by daily employee activity sheets (timesheets) that 

document charged hours. Timesheets must be prepared by employees and be approved by management.

Fringe: Fringe benefits may be charged directly using established practices. Claimed costs must be reasonable in amount and conform to an 

established policy. Use of a pre-established provisional rate requires allocation to total salary costs. Rates must be adjusted to actual at year end. 

Rates should be reviewed at least once annually. Direct charging requires equitable allocation and supporting documentation.

Indirect costs: As a supplemental program, the CCP does not fund a line-item category for indirect costs. All charges must be direct.

Consultants: Consultant costs must be supported by a consulting agreement that documents the service to be performed, cost, and applicable

time periods. Documentation to support need, reasonability of rates, adherence to the FEMA training policy, and consultant expertise must be 

maintained, together with evidence of work product.

Equipment: Acquisition of equipment for the project requires prior government approval. Costs may be charged directly only for items fully 

dedicated to the project. Costs associated with personal use are unallowable. Items that either benefit the organization as a whole or have a 

useful life beyond the life of the project should be capitalized and depreciated; only applicable depreciation should be charged to the grant.
CCP Guidance, Version 5.3 | Page 53

Supplies: Supplies may be charged directly if used solely for the SAMHSA grant. Support in the form of invoices or payment receipts should be 

maintained.

Travel: Travel must be preapproved and supported by travel expense reports detailing employee name, reason for trip, and itemized expenses 

claimed. Claimed costs should be charged according to a detailed travel policy that requires prior approval, complies with OMB cost principles, 

and provides expenditure limitations. Major items of expense (e.g., airfare, lodging) should be supported by receipts. Expense reports should be 

reviewed for whether they are allowable prior to payment.

Other: Costs may be charged only if they are specific to the SAMHSA grant; costs must be supported by adequate documentation (invoices, 

receipts, etc.).

Contracts: Contractual costs include all subcontracts and sub-recipient grants. Costs should be awarded in accordance with the C.F.R. Agreements 

must be in writing and include a statement of work, applicable dates, and cost ceilings. Need and cost and price analyses should be documented. 

Awards should be competitive; any sole-source awards must be adequately justified.
CCP Guidance, Version 5.3 | Page 54

Appendix D: SF-424 Tip Sheet

This SF-424 tip sheet provides additional information specifically related to CCP applications. Please also 

refer to the SF-424 instructions.

Item 

Number

Tip

1 Check “Application.”

2 Check “New.”

3 Leave blank.

4 Leave blank.

5a Leave blank.

5b Leave blank.

6 Leave blank.

7 Leave blank.

8a For the Immediate Services Program (ISP) application, the applicant’s legal name is the 

state (or tribal) emergency management agency (SEMA).

For the Regular Services Program (RSP) application, the applicant’s legal name is the 

state mental health authority (SMHA) or the tribal chief executive.

8b For the ISP application, the employer/taxpayer identification number can be obtained 

from the SEMA.

For the RSP application, it can be obtained from the department of mental health’s 

fiscal management office.

8c For the ISP application, the organization Data Universal Numbering System (DUNS) 

number can be obtained from the SEMA.

For the RSP application, it can be obtained from the department of mental health’s 

fiscal management office.

8d For the ISP application, enter the Governor’s Authorized Representative’s (GAR’s) 

complete address here.

For the RSP application, enter the SMHA’s or tribal chief executive’s complete address 

here.

8e For the ISP application, enter the GAR’s department and division name here.

For the RSP application, enter the SMHA’s or tribal chief executive’s department and 

division name here.

8f Typically, the Disaster Behavioral Health Coordinator’s contact information is entered 

here.

9 Only the first line for “Applicant 1” should be filled out. The type of applicant is “A. 

State Government.”

10 The federal agency is the “Federal Emergency Management Agency.”
CCP Guidance, Version 5.3 | Page 55

Item 

Number

Tip

11 For both the ISP and the RSP, states should enter the CFDA number 97.032. The title is 

“Crisis Counseling.”

For the RSP, SAMHSA Grants Management also requires the SAMHSA CFDA number, 

93.982, “DHHS Mental Health Disaster Assistance and Emergency Mental Health,” to 

be entered.

12 Per FEMA, leave the Funding Opportunity Number blank.

13 Leave blank.

14 The CCP application must correspond with areas listed in the Presidential disaster 

declaration. Generally, declarations specify counties as geographic units included in 

the declaration, but they may also specify parishes, municipalities, or other large 

geographic area designations. Applicants should list declared counties, parishes, or 

municipalities to be served.

15 This may be listed as “Immediate Services Program (or Regular Services Program)— 

Crisis Counseling Assistance and Training Program,” or if the state has already titled 

the project (e.g., Project Recovery), that title may be used instead.

16a Enter the two-letter state abbreviation, followed by “-all” (e.g., “MD-all” for an 

application from the State of Maryland).

16b This item should specify the state congressional districts included in the geographic 

units identified in item number 14. If the counties, parishes, or municipalities 

identified are all included in one state congressional district, then the code will include 

the two-letter state abbreviation followed by the number of the congressional district 

(e.g., CA-012). If the identified geographical area includes more than one 

congressional district, they should all be identified (e.g., NY-105, NY-106,NY-107).

17 The ISP is a 60-day program that begins on the date of the disaster declaration (day 0). 

Day 1 is the day after the declaration. Costs incurred to carry out services funded by 

the CCP may be reimbursed from the date of the disaster through the date the ISP 

application is submitted. Note that separate budgets are required for the projected 

program period and the reimbursable period leading up to the submission of the ISP 

application. For example, if the President declares a disaster March 1, the 60-day ISP 

program period will begin that day, which is day 0. The 60-day period will end April 30. 

However, the proposed project dates on the SF-424 would be March 15 (accounting 

for the 14 days given to complete the ISP application) as a start date and April 30 as an 

end date. The reimbursable budget would represent those costs incurred from the 

date of declaration (or the date of the disaster, if prior to the declaration) through 

March 15.

The RSP provides funding for up to 9 months from the date the RSP is awarded, and 

so, for example, if the ISP ended on April 30, the proposed project dates for the RSP 

might be May 1 through January 31.

18 The amount of requested federal assistance should be provided in (a). In-kind 

contributions should be listed in (c) or (d). There should be no program income, and 

estimates should be rounded to the nearest dollar.
CCP Guidance, Version 5.3 | Page 56

Item 

Number

Tip

19 Disaster relief grants are exempt from this executive order. Applicants should check 

box “c.”

20 The state must answer this question in consultation with its fiscal management 

offices.

21 For the ISP application, the signature block must be completed by the GAR.

For the RSP application, the signature block must be completed by the authorized 

representative or head of the SMHA or tribal chief executive.

No one else may sign for the Governor. An SF-424 signed by anyone else will be 

returned and may delay processing of the application.

Regarding the Budget Information—Non-Construction Programs form (SF-424a):

Item 

Number

Tip

1a Enter “Crisis Counseling” for the ISP and the RSP.

1b Enter 97.032 for the ISP and both 97.032 and 93.982 for the RSP.
CCP Guidance, Version 5.3 | Page 57

Appendix E: Federal Financial Report (FFR) SF-425
CCP Guidance, Version 5.3 | Page 58

Appendix F: Federal Financial Report (FFR) SF-425 Instructions

FFR Instructions

Report Submissions

1. Recipients will be instructed by federal agencies to submit the FFR to a single location,

except when an automated payment management reporting system is utilized. In this case,

a second submission location may be required by theagency.

2. If recipients need more space to support their FFRs, or FFR attachments, they should provide

supplemental pages. These additional pages must indicate the following information at the

top of each page: federal grant or other identifying number (if reporting on a single award),

recipient organization, DUNS number, Employer Identification Number (EIN), and period

covered by the report.

Reporting Requirements

1. The submission of interim FFRs will be on a quarterly, semiannual, or annual basis, as

directed by the federal agency. A final FFR shall be submitted at the completion of the award

agreement. The following reporting period end dates shall be used for interim reports:

March 31, June 30, September 30, or December 31. For final FFRs, the reporting period end

date shall be the end date of the project or grant period.

2. Quarterly and semiannual interim reports shall be submitted no later than 30 days after the

end of each reporting period. Final reports shall be submitted no later than 120 days after

the project or grant period end date.

Note: For single award reporting:

1. Federal agencies may require both cash management information on lines 10(a) through

10(c) and financial status information lines 10(d) through 10(o).

2. 10(b) and 10(e) may not be the same until the finalreport.
CCP Guidance, Version 5.3 | Page 59

Line-item Instructions for the FFR

FFR

Number

Reporting Item Instructions

Cover Information

1 Federal Agency 

and 

Organizational 

Element

Enter the name of the federal agency and organizational element 

identified in the award document or as instructed by the agency.

2 Federal Grant or 

Other Identifying 

Number

For a single award, enter the grant number assigned to the award by 

the federal agency. For multiple awards, report this information on 

the FFR.

Attachment. Do not complete this box if reporting onmultiple 

awards.

3 Recipient 

Organization

Enter the name and complete address of the recipient organization, 

including ZIP code.

4a DUNS Number Enter the recipient organization’s DUNS number.

4b EIN Enter the recipient organization’s EIN.

5 Recipient Account 

Number or 

Identifying 

Number

Enterthe account number or any other identifying number assigned 

by the recipient to the award. This number is for the recipient’s use 

only and is not required by the federal agency. For multiple awards, 

report this information on the FFR.

Attachment. Do not complete this box if reporting on multiple 

awards.

6 Report Type Mark appropriate box. Do not complete this box if reporting on 

multiple awards.

7 Basis of 

Accounting 

(Cash/Accrual)

Specify whether a cash or accrual basis was used for recording 

transactions related to the award(s) and for preparing this FFR.

Accrual basis of accounting refers to the accounting method in which 

expenses are recorded when incurred. For cash basis accounting,

expenses are recorded when they are paid.

8 Project/Grant 

Period, From: 

(Month, Day, 

Year)

Indicate the period established in the award document during which 

federal sponsorship begins and ends.

Note: Some agencies award multi-year grants for a project period 

that is funded in increments or budget periods (typically annual 

increments). Throughout the project period, agencies often require 

cumulative reporting for consecutive budget periods. Under these 

circumstances, enter the beginning and ending dates of the project 

period not the budget period.

Do not complete this line if reporting on multiple awards.

Project/Grant 

Period, To:

See the above instructions for “Project/Grant Period, From: (Month, 

Day, Year).”
CCP Guidance, Version 5.3 | Page 60

FFR

Number

Reporting Item Instructions

9 Reporting Period 

End Date: (Month, 

Day, Year)

Enter the ending date of the reporting period. For quarterly, 

semiannual, and annual interim reports, use the following reporting 

period end dates: March 31, June 30, September 30, or December

31. For final FFRs, the reporting period end date shall be the end

date of the project or grant period.

10 Transactions

Enter cumulative amounts from date of the inception of the award through the end date 

of the reporting period specified in line 9.

Use Lines 10a through 10c, Lines 10d through 10o, or Lines 10a through 10o, as specified 

by the federal agency, when reporting on single grants.

Use Line 12, Remarks, to provide any information deemed necessary to support or explain

FFR data.

Federal Cash (To report multiple grants, also use FFR attachment.)

10a Cash Receipts Enter the cumulative amount of actual cash received from the 

federal agency as of the reporting period end date.

10b Cash 

Disbursements

Enter the cumulative amount of federal fund disbursements by the 

grantee (such as cash or checks) as of the reporting period end date. 

Disbursements are the sum of actual cash disbursements (of 

federally authorized funds) for direct charges for goods and services, 

the amount of indirect expenses charged to the award, and the 

amount of cash advances and payments (of federally authorized 

funds) made to sub-recipients and contractors.

For multiple grants, report each grant separately on the FFR

attachment. The sum of the cumulative cash disbursements on the

FFR attachment must equal the amount entered on Line 10b, FFR.
CCP Guidance, Version 5.3 | Page 61

FFR

Number

Reporting Item Instructions

10c Cash On Hand 

(Line 10a Minus 

Line 10b)

Enter the amount of Line 10a minus Line 10b. This amount 

represents immediate cash needs.

Use of Aggregated Amounts of Disbursements and Advances. A 

recipient must compute the amount of federal cash on hand due to 

undisbursed advance payments using the same basis that it uses in 

requesting the advances. Therefore, in doing the computation, a 

recipient may only aggregate the amounts of its advance payments 

received and disbursements of federal funds under multiple awards 

only if it is authorized to aggregate its requests for advance 

payments in the same manner. The following examples should help 

to illustrate what is permissible:

● If a recipient is authorized to consolidate its requests foradvance

payment for a group of awards—i.e., it requests a single amount

to cover its anticipated cash needs for the awards in the

aggregate, then it may similarly compute the cash on hand by

subtracting the aggregated amount of disbursements from the

aggregated amount of the advances received for thoseawards.

● If the same recipient is required to request payment individually

for other federal awards, it must compute the cash on hand for

each of those awards on an award by award basis and

correspondingly report these awards on separate FFRs.

Exclusion of Negative Balances of Cash on Hand. In computing the 

total amount of cash on hand for its federal awards in the aggregate, 

a recipient must exclude any negative balance of federal cash on 

hand for an individual award or for a group of awards paid through a 

consolidated payment request.

This includes each award paid by the reimbursement method and 

any award using the advance method that has disbursements in 

excess of advances received to date. The computation must include 

only positive balances of cash on hand.

If more than three business days of cash are on hand, the federal 

agency may require an explanation on Line 12, Remarks, explaining 

why the drawdown was made prematurely or other reasons for the

excess cash.

Federal Expenditures and Unobligated Balance: Do not complete this section if reporting on multiple 

awards.

10d Total Federal 

Funds

Enter the total federal funds authorized as of the reporting period 

end date.
CCP Guidance, Version 5.3 | Page 62

FFR

Number

Reporting Item Instructions

10e Federal Share of 

Expenditures

Enterthe amount of federal fund expenditures. For reports prepared 

on a cash basis, expenditures are the sum of cash disbursements for 

direct charges for property and services, the amount of indirect 

expense charged, and the amount of cash advance payments and 

payments made to sub-recipients. For reports prepared on an 

accrual basis, expenditures are the sum of cash disbursements for 

direct charges for property and services; the amount of indirect 

expense incurred; and the net increase or decrease in the amounts 

owed by the recipient for (1) goods and other property received; (2) 

services performed by employees, contractors, sub-recipients, and 

other payees; and (3) programs for which no current services or 

performance are required. Do not include program income 

expended in accordance with the deduction alternative, rebates, 

refunds, or other credits. (Program income expended in accordance 

with the deduction alternative should be reported separatelyon

Line 10m.)

10f Federal Share of 

Unliquidated 

Obligations

Unliquidated obligations on a cash basis are obligations of federally 

authorized funds which are incurred, but not yet paid as of the end 

of the reporting period. On an accrual basis, they are obligations of 

federally authorized funds which have been incurred, but for which 

an expenditure has not yet been recorded, as of the end of the 

reporting period. Enter the amount of unliquidated obligations of 

federally authorized funds. Those obligations include direct and 

indirect expenses incurred but not yet paid or charged to the award, 

including amounts due to sub-recipients and contractors. On the 

final report, this line should be zero unless the awarding agency has 

provided other instructions.

Do not include any amount in Line 10f that has been reported in Line 

10e. Do not include any amount in Line 10f for a future commitment 

of funds (such as a long-term contract) for which an obligationor

expense has not been incurred.

10g Total Federal 

Share (Sum)

Enter the sum of Lines 10e and 10f.

10h Unobligated 

Balance of Federal 

Funds

Enter the amount of Line 10d minus Line 10g.

Recipient Share: Do not complete this section if reporting on multiple awards.
CCP Guidance, Version 5.3 | Page 63

FFR

Number

Reporting Item Instructions

10i Total Recipient 

Share Required

Enter the total required recipient share for reporting period specified 

in Line 9. The required recipient share should include all matching 

and cost sharing provided by recipients and third-party providers to 

meet the level required by the federal agency. This amount should 

not include cost sharing and match amounts in excess of the amount 

required by the federal agency (for example, cost overruns for which 

the recipient incurs additional expenses and, therefore, contributes a 

greater level of cost sharing or match than the level required by the

federal agency).

10j Recipient Share of 

Expenditures

Enter the recipient share of actual cash disbursements or outlays 

(less any rebates, refunds, or other credits) including payments to 

sub-recipients and contractors. This amount may include the value of 

allowable third party in-kind contributions and recipient share of 

program income used to finance the nonfederal share of the project 

or program. Note: On the final report this line should be equal to or

greater than the amount of Line 10i.

10k Remaining 

Recipient Share to 

be Provided

Enter the amount of Line 10i minus Line 10j. If recipient share in Line 

10j is greater than the required match amount in Line 10i, enter zero.

Program Income: Do not complete this section if reporting on multiple awards.

10l Total Federal 

Share of Program 

Income Earned

Enterthe amount of the federal share of program income earned. Do 

not report any program income here that is being allocated as part of 

the recipient's cost sharing amount included in Line 10j.

10m Program Income 

Expended in 

Accordance with 

the Deduction

Alternative

Enter the amount of program income that was used to reduce the 

federal share of the total project costs.

10n Program Income 

Expended in 

Accordance the 

Addition

Alternative

Enter the amount of program income that was added to funds 

committed to the total project costs and expended to further eligible 

project or program activities.

10o Unexpended 

Program 

Income

Enter the amount of Line 10l minus Line 10m or Line 10n. This 

amount equals the program income that has been earned but not 

expended, as of the reporting period end date.

11 Indirect Expense: Complete this information only if required by the awarding agency. 

Enter cumulative amounts from date of the inception of the award through the end date 

of the reporting period specified in Line 9.

11a Type of Rate(s) State whether indirect cost rate(s) is Provisional, Predetermined, 

Final, or Fixed.

11b Rate Enter the indirect cost rate(s) in effect during the reporting period.

11c Period From Enter the beginning and ending effective dates for the rate(s).
CCP Guidance, Version 5.3 | Page 64

FFR

Number

Reporting Item Instructions

11d Base Enter the amount of the base against which the rate(s) was applied.

11e Amount Charged Enter the amount of indirect costs charged during the time period 

specified. (Multiply 11b. and 11d.)

11f Federal Share Enter the federal share of the amount in 11e.

11g Totals Enter the totals for columns 11d, 11e, and 11f.

Remarks, Certification, and Agency Use Only

12 Remarks Enter any explanations or additional information required by the 

federal sponsoring agency including excess cash as stated in Line 10c.

13a Typed or Printed 

Name and Title of 

Authorized

Certifying Official

Enter the name and title of the authorized certifying official.

13b Signature of 

Authorized 

Certifying Official

The authorized certifying official must sign here.

13c Telephone (Area 

Code, Extension)

Enter the telephone number (including area code and extension) of 

the individual listed in Line 13a.

13d Email Address Enter the email address of the individual listed in Line 13a.

13e Date Report 

Submitted

Enter the date the FFR is submitted to the federal agency using the 

month, day, year format.

14 Agency Use Only This section is reserved for federal agency use.