Public Assistance

Applicant Handbook

FEMA P-323 / March 2010

Applicant Handbook i

Foreword

When a disaster or emergency occurs, it is the responsibility first of the local 

community and the State or Tribe to respond. However, their combined 

efforts at times are not sufficient to effectively address the direct results of the 

most serious events. These situations call for Federal assistance. The Robert 

T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act), 42 

U.S.C. §§5121–5207, authorizes the President to provide Federal assistance 

to supplement State, Tribal, and local efforts. The Federal Emergency 

Management Agency (FEMA), a component of the Department of Homeland 

Security, coordinates the delivery of assistance under the law and provides 

grants through the Public Assistance Program to help with the extraordinary 

costs for response and infrastructure recovery. This Handbook explains how 

applicants can obtain help through the Public Assistance Program. Potential 

recipients of this assistance include State, Tribal, and local governments and 

certain types of private nonprofit organizations.

The mission of the Public Assistance Program is to assist communities in 

recovering from the devastating effects of disasters and emergencies by 

providing technical assistance and financial grants in an efficient, effective, 

consistent, and customer-friendly manner. Accordingly, it is important 

that everyone shares a common understanding of program policies and 

procedures. By understanding the content of this Handbook and following 

the principles outlined in it, applicants can participate as knowledgeable 

partners in obtaining grant funding. Additional information about the Public 

Assistance Program is available through the FEMA Web site (www.fema.gov/

government/grant/pa/). Because this Handbook is not exhaustive and the 

provisions of the program are subject to modification, applicants should 

confer with FEMA Public Assistance Program officials during their decisionmaking process. Please send comments or suggestions for improvements to 

the program and this Handbook to:

James A. Walke

Director, Public Assistance Division

Federal Emergency Management Agency

500 C Street, SW, Room 414

Washington, D.C. 20472

Elizabeth A. Zimmerman 

Assistant Administrator, Recovery Directorate

Federal Emergency Management Agency

Applicant Handbook iii

Contents

Foreword................................................................................................i

List of Acronyms ................................................................................ vii

CHAPTER 1: Introduction.......................................................................1

CHAPTER 2: Getting Started..................................................................5

Preliminary Damage Assessment ...............................................................5

What do I need to do to participate in the Preliminary Damage 

Assessment process?.............................................................................5

Cost Share ...................................................................................................6

Basic Eligibility ............................................................................................6

Public Entities ............................................................................................7

Tribal Governments....................................................................................7

Private Nonprofit (PNP) Organizations....................................................7

The Public Assistance Program Process ....................................................7

What do I need to do to get started? ..................................................9

Getting a Monetary Advance for Your Emergency Work .......................10

What do I need to do to receive Immediate Needs Funding? ........10

CHAPTER 3: Funding Information You Need to Know.............................13

Debris Removal (Category A) .................................................................13

Emergency Protective Measures (Category B)........................................14

Permanent Work (Categories C-G) .........................................................15

Management Costs (Declarations on or after November 13, 2007)......17

Administrative Costs (Declarations before November 13, 2007) ..........18

What do I need to do? .......................................................................19

CHAPTER 4: Kickoff Meeting...............................................................21

Purpose of the Kickoff Meeting ...............................................................21

What do I need to do? .......................................................................21

CHAPTER 5: Funding Options...............................................................23

Infrastructure Restoration Options.........................................................23

Repair or Replacement Projects ..............................................................23

Improved Projects.....................................................................................24

Alternate Projects......................................................................................26

What do I need to do? .......................................................................28
iv Applicant Handbook

CHAPTER 6: Projects – How They Are Paid...........................................29

Overview....................................................................................................29

Small Projects............................................................................................29

What do I need to do – small projects? ............................................31

Large Projects............................................................................................32

What do I need to do – large projects?.............................................33

CHAPTER 7: Subgrant Applications (Project Worksheets) and 

Cost Estimating..................................................................................35

General......................................................................................................35

Subgrant Application (Project Worksheet) Preparation.............................37

What do I need to do to help develop the Subgrant Applications 

(Project Worksheets)?.............................................................................47

Forms.........................................................................................................48

Versions/Amendments/Change Orders.................................................48

CHAPTER 8: Dealing With Changes to the Project and 

Appealing Decisions............................................................................49

Time...........................................................................................................49

Cost and Scope..........................................................................................49

Undiscovered and Newly Discovered Damage........................................50

Appeals ......................................................................................................50

What do I need to do? .......................................................................51

CHAPTER 9: Documentation................................................................53

What do I need to do? ..............................................................................55

Forms.........................................................................................................56

CHAPTER 10: Progress Reports, Closeout, and Audit............................57

Progress Reports .......................................................................................57

Closeout.....................................................................................................57

Audits.........................................................................................................58

What do I need to do? .......................................................................58

CHAPTER 11: Conclusion.....................................................................61

Sources of Information.............................................................................61

Apply for Assistance..................................................................................61

Keep Good Records..................................................................................61

Your Checklist of Milestone Events .........................................................61
Applicant Handbook v

APPENDIX A: Private Nonprofit (PNP) Organizations............................A-1

Qualifying PNP Facilities........................................................................ A-1

Qualifying Work...................................................................................... A-3

Small Business Administration............................................................... A-4

Some Things You Need to Know ........................................................... A-4

What do I need to do? ..................................................................... A-6

APPENDIX B: Insurance......................................................................B-1

Insurance Reductions............................................................................. B-1

Required Documentation ...................................................................... B-2

Obtaining and Maintaining Insurance.................................................. B-3

What do I need to do? ..................................................................... B-4

APPENDIX C: Hazard Mitigation..........................................................C-1

What It Is ................................................................................................. C-1

Some Things You Need to Know ........................................................... C-2

What do I need to do to obtain Section 406 hazard 

mitigation funding? ......................................................................... C-3

APPENDIX D: Historic Preservation.....................................................D-1

What do I need to do? .....................................................................D-2

APPENDIX E: Environmental Compliance............................................. E-1

What is my role? ............................................................................... E-2

Form ........................................................................................................ E-3

APPENDIX F: FEMA Forms.................................................................. F-1

APPENDIX G: Glossary of Terms..........................................................G-1

APPENDIX H: FEMA Policies and Publications.....................................H-1

Index.................................................................................................. I-1

Applicant Handbook vii

List of Acronyms 

ADA Americans with Disabilities Act

CBRA Coastal Barrier Resources Act

CBRS Coastal Barrier Resources System

CEF Cost Estimating Format

CMF Case Management File

CFR Code of Federal Regulations

CWA Clean Water Act

DHS Department of Homeland Security

EMAC Emergency Management Assistance Compact

EO Executive Order

ESA Endangered Species Act

FCO Federal Coordinating Officer

FEMA Federal Emergency Management Agency

FHWA Federal Highway Administration

FIA Federal Insurance Administration

FICA Federal Insurance Contributions Act

FIRM Flood Insurance Rate Map

FSR Final Status Report

GAR Governor’s Authorized Representative

HUD Department of Housing and Urban Development

ICS Incident Command System

JFO Joint Field Office

NEPA National Environmental Policy Act

NFIP National Flood Insurance Program

NHPA National Historic Preservation Act

NMFS National Marine Fisheries Service

NOAA National Oceanic and Atmospheric Administration

NRCS Natural Resources Conservation Service

OCC FEMA’s Office of Chief Counsel

PA Public Assistance

PAC PAC Crew Leader
viii Applicant Handbook

PDA Preliminary Damage Assessment

PFO Principal Federal Official

PL Public Law

PNP Private Nonprofit

PW Project Worksheet

RA Regional Administrator (FEMA)

RPA Request for Public Assistance 

SBA Small Business Administration

SCO State Coordinating Officer

SFHA Special Flood Hazard Area

SHPO State Historic Preservation Officer

SMD State Management of Disasters

SOP Standard Operating Procedure

THPO Tribal Historic Preservation Officer

USACE U.S. Army Corps of Engineers

USFWS U.S. Fish and Wildlife Service
Chapter 1: Introduction 1

CHAPTER 1

Introduction

When disasters and emergencies occur, the magnitude of work can seem 

overwhelming. Often, the work is different from the work you usually 

accomplish, and there is a tremendous amount of it. You must address 

these events whether Federal assistance is available or not. While FEMA is 

not able to help you with all of your costs in a Presidentially declared major 

disaster or emergency, FEMA is able to help with some of them.

The most immediate source to help with response and recovery is your 

own force account labor, materials, and equipment. They are within your 

authority and available to you. In a Presidentially declared event, some of 

your labor, materials, and equipment costs will be eligible for cost-shared 

FEMA assistance. 

Your State may provide labor, materials, equipment, and funds for your 

response and recovery efforts under State Emergency Plans whether 

Federal assistance is available or not.

Other jurisdictions and agencies may also come to your aid under mutual 

aid agreements whether Federal assistance is available or not. If the purpose 

and provisions of the mutual aid agreements comply with FEMA policy, 

reasonable costs generally will be eligible for cost-shared FEMA assistance in 

a Presidentially declared event.

If your needs exceed your local capabilities, you may use contracts to 

get the work done. Consider Federal, State, and local procurement 

requirements when procuring goods and services through contracts. If the 

work is reasonable and necessary and if contracts are awarded according to 

FEMA requirements, the costs generally are eligible for cost-shared FEMA 

assistance.

Donations of labor, materials, and equipment can also help with emergency 

work. If you keep records (hours worked, the work site, description of work, 

etc.) of what was donated, you may also use such donations toward your 

portion of any cost-share for other emergency work. 
2 Chapter 1: Introduction

Above and beyond the sources described above, there are other sources 

you should consider for help in your recovery. They include Federal 

departments and agencies with specific authority for your damaged facilities 

(e.g., the U.S. Army Corps of Engineers [USACE], the U.S. Department of 

the Interior, the Natural Resources Conservation Service [NRCS], the U.S. 

Department of Transportation Federal Highway Administration [FHWA], 

and the Departments of Commerce and Housing and Urban Development 

[HUD]). Your State will help guide you to the appropriate sources for 

assistance.

When the impact of a major disaster or emergency is so severe that neither 

the State nor local government can adequately respond, either by direct 

performance or by contract, the State may request that FEMA supplement 

State and local efforts with certain emergency work performed directly by 

a Federal Agency. FEMA, through Mission Assignments, may direct other 

Federal agencies to perform emergency work or contract for the work as 

long as the work is eligible under the Stafford Act and Federal regulations. 

FEMA, other Federal agencies, and contracted entities may provide you 

with emergency food, water, shelter, medical assistance, search and rescue, 

debris removal, and other important emergency tasks. 

The Federal government shares the cost with you (usually 75 percent 

Federal and 25 percent non-Federal) according to the FEMA-State 

Agreement (a formal legal document stating the understandings, 

commitments, and binding conditions for assistance in the major disaster 

or emergency) for the major disaster or emergency. When conditions 

warrant and if authorized by the President, 100 percent Federal funding 

may even be available for a limited period of time. 
Chapter 1: Introduction 3

FEMA will also share the costs, generally on a reimbursable basis, of 

the eligible emergency and permanent work, not performed through 

Mission Assignments, that is part of your response to and recovery from a 

Presidentially declared event. A summary of the process for obtaining this 

FEMA assistance is as follows:

1. Applicants should not delay taking the necessary response and recovery actions. Those 

actions should not be dependent upon receiving Federal funds. 

CHAPTERS 2–10 of this Handbook describe this process in more detail. 

CHAPTER 11 provides some additional sources of information and gives 

you a checklist of milestones for obtaining and using FEMA grant funding. 

The APPENDICES are important for understanding requirements for 

Private Nonprofit (PNP) organizations and special considerations issues 
4 Chapter 1: Introduction

(insurance, hazard mitigation, historic preservation, and environmental 

compliance, including floodplain management). The Appendices also 

include samples of FEMA forms you may need to complete the Public 

Assistance process, a Glossary of Terms, and a list of relevant FEMA policies 

and publications. 

Certain individuals will be of help to you in obtaining assistance with your 

disaster recovery. You will be working with all of them and they are referred 

to frequently in this Handbook. They include:

State PA Representative Your point of contact, designated by your State, 

who will help you obtain FEMA assistance. 

PA Group Supervisor FEMA’s manager of the PA Program. The FEMA 

Public Assistance Group Supervisor (PA Group 

Supervisor) will manage the overall operation 

of PA Program staff, coordinate between PA 

Program staff, other Federal agencies, and 

State counterparts, and ensure that the PA 

Program is operating in compliance with all laws, 

regulations, and policies.

PAC Crew Leader FEMA’s primary point of contact assigned to 

work with you and guide you through the steps 

to obtaining funding. The FEMA PAC Crew 

Leader will advise you on eligibility issues, 

obtain specialists to assist with your projects, and 

approve certain project costs. 

Project Specialist FEMA’s specialist who will work directly with you 

in assessing your damage sites and in developing 

scopes of work and cost estimates. The FEMA 

Project Specialist will also identify the need for 

other specialists and work with the FEMA PAC 

Crew Leader in obtaining their services for your 

projects.

Technical Specialist FEMA’s specialists in debris, insurance, 

cost estimating, hazard mitigation, historic 

preservation, environmental compliance, 

floodplain management, and other specialty 

areas who will help you with special issues. 
Chapter 2: Getting Started 5

CHAPTER 2

Getting Started

Preliminary Damage Assessment

After a disaster has occurred and a state of emergency has been declared 

by your Governor, your State will evaluate the response and recovery 

capabilities of the State and local governments. If your State believes that 

response and recovery is beyond the combined capability of the State and 

local governments, the Governor may request that the FEMA Regional 

Administrator assist with a Preliminary Damage Assessment. 

During this effort, FEMA and State representatives will visit local 

governments, Tribes, and other potential applicants identified by the 

State PA Representative to view their damage first-hand and to assess the 

scope of damage, estimate repair costs, identify unmet needs, and gather 

information for other management purposes. The Governor will use 

the information gathered during this Preliminary Damage Assessment 

process to request Federal assistance to supplement State and local efforts. 

Occasionally, when the catastrophic nature and magnitude of an event 

are very clear, the President may declare a major disaster or emergency 

immediately, thereby abbreviating the Preliminary Damage Assessment. 

What do I need to do to participate in the 

Preliminary Damage Assessment process?

9 Contact your State PA Representative to report that your 

jurisdiction has suffered damages.

9 Because the situations are generally urgent, the FEMA/State 

team has limited time to collect the damage information. To 

help document the magnitude and impact of the disaster or 

emergency and to help the Governor obtain Federal assistance, 

be prepared to show the team a representative sampling of your 

damage sites. 

9 Provide a map (preferably 81⁄2 x11 inches) of your jurisdiction 

showing all damage sites.
6 Chapter 2: Getting Started

9 Inform the Preliminary Damage Assessment team of your 

emergency work (along with any associated immediate 

expenditures) and by helping to estimate the costs to repair 

damaged facilities.

9 You also can assist the Preliminary Damage Assessment team 

by estimating the costs you have incurred. See CHAPTER 7 for 

more information on cost estimating.

Cost Share

After a Presidential declaration has been made, FEMA will publish in the 

Federal Register the President’s decision on which areas are eligible for 

assistance and the types of assistance available. The Federal share will always 

be at least 75 percent of the eligible costs and may be more, depending 

on the severity of the disaster or emergency. All applicants, including PNP 

organizations, are subject to the cost share outlined in the FEMA-State 

Agreement. This cost sharing applies to all eligible work. The FEMA-State 

Agreement will also describe the cost share provisions that apply to Direct 

Federal Assistance (for example, Mission Assignments) provided by a 

Federal agency, including any administrative costs of the Federal agency’s 

assistance. 

Basic Eligibility

Once a Presidential declaration has been made, damage that meets all of 

the following criteria may be eligible for cost-shared FEMA assistance:

 The damage is a direct result of the declared event;

 The damage that occurs can be tied directly to the declared event;

 The damage occurred within the designated disaster area (except 

sheltering and evacuation activities that may be located outside the 

designated area);

 The damage is the applicant’s legal responsibility at the time of the 

disaster;

 With very few exceptions, the damage occurred at a facility in active 

use; and 

 The damage is not within the specific authority of another Federal 

program.
Chapter 2: Getting Started 7

Assistance can be for debris removal, emergency protective measures, and 

permanent restoration of your damaged infrastructure. There are other 

eligibility requirements, but the first test of eligibility is the above list.

Public Entities

State and local government entities are eligible applicants. This group 

includes: the States of the United States of America, the District of 

Columbia, the territories of Guam, the Virgin Islands, and American 

Samoa, the Commonwealths of Puerto Rico and the Northern Mariana 

Islands, counties, municipalities, cities, towns, townships, local public 

authorities, school districts, special districts, intrastate districts, councils of 

government, regional or interstate government entities, and agencies or 

instrumentalities of a local government.

Tribal Governments

Federally recognized Indian Tribal governments, including Alaska Native 

villages and organizations, are eligible applicants. Privately owned Alaska 

Native Corporations are not. Generally, Indian Tribes are considered 

applicants and receive grant funds through the State. 

In some States, however, State regulations prohibit the State from acting 

as grantee for FEMA funds for an Indian Tribe. In such cases, or upon 

the choice of the Tribal government, the Tribal government may act as its 

own grantee. The Tribal government must apply to the FEMA Regional 

Administrator to become its own grantee. An Indian Tribal government 

that chooses to act as its own grantee becomes responsible for the entire 

non-Federal share of the public assistance grant. If the Indian Tribal 

government is the grantee, it takes on the roles and responsibilities 

described throughout this Handbook for the State. 

Private Nonprofit (PNP) Organizations

PNP organizations that own or operate facilities that provide certain 

services of a governmental nature are eligible applicants. (Further 

discussion of the eligibility of PNPs is provided in APPENDIX A.) 

The Public Assistance Program Process

Overview of the Process. The Applicants’ Briefing begins your 

formal participation in the Public Assistance Program. What follows 

will be submittal of your Pre-application (Request for Public Assistance) 

(CHAPTER 2); a Kickoff Meeting (CHAPTER 4), a meeting in which your 

FEMA PAC Crew Leader will guide you through the process of getting help; 
8 Chapter 2: Getting Started

development of Subgrant Applications (Project Worksheets) (CHAPTER 7); 

and, eventually, closeout (CHAPTER 9). Generally, you will have 6 months 

to complete your debris clearance and emergency work, and 18 months 

to complete your permanent restoration work. See CHAPTER 6 for 

information on how projects are funded, CHAPTER 8 for more timeline 

information, and the checklist in CHAPTER 11 for important milestones 

associated with the process. 

Applicants’ Briefing. One of the first events in the process of getting 

assistance with damages is the Applicants’ Briefing. It is a meeting 

conducted by the State to provide an overview of the Public Assistance 

Program. The State will notify potential applicants (State and local 

governments, Tribal governments, and PNP organizations) of the 

date, time, and location of this meeting as soon as practicable after the 

President’s declaration. To obtain maximum benefit from the information 

presented at the briefing, you should send representatives of your 

organization’s management, emergency response, public works, and 

accounting/finance/procurement operations.

During the briefing, a State PA Representative will tell you about:

 The disaster or emergency that was declared

 The incident period for which damages may be eligible

 Applicant, facility, work, and cost eligibility

 Eligibility of PNP organizations and facilities (see also APPENDIX A)

 The process for documenting projects

 Funding options

 Federal procurement standards

 Record keeping and documentation requirements

 Special Considerations

9 Insurance claims and requirements (see also APPENDIX B)

9 Hazard Mitigation (see also APPENDIX C)

9 Historic preservation compliance requirements that apply to the 

receipt of Federal assistance (see also APPENDIX D) 
Chapter 2: Getting Started 9

9 Environmental compliance requirements, including floodplain 

management, that apply to the receipt of Federal assistance (see 

also APPENDIX E)

 State grant requirements

FEMA personnel will attend the meeting to clarify any issues regarding the 

Public Assistance Program. You should submit your Pre-application (Request 

for Public Assistance) (FEMA Form 90-49) at this meeting. This is FEMA’s 

official application form to apply for the Public Assistance Program. It is 

a simple, short form with self-contained instructions. The Pre-application 

form (Request for Public Assistance) asks for general contact information, 

which FEMA and the State use to start the grant process and open your 

Case Management File. Your Case Management File will contain general 

claim information as well as records of meetings, conversations, phone 

messages, and any special issues or concerns that may affect funding for 

your projects.

What do I need to do to get started?

9 You need to submit your Pre-application form (Request for Public 

Assistance) to your State PA Representative within 30 days of the 

date of designation of your disaster area. If you haven’t already 

prepared it prior to the Applicants’ Briefing, complete it and 

submit it online (if your State provides for that) or during the 

meeting. Don’t wait until you have identified all your damage 

before submitting your Pre-application form (Request for Public 

Assistance), as this document starts the process for getting your 

funding.

9 In addition to submitting your Pre-application form (Request for 

Public Assistance), be sure to raise any concerns or identify any 

needs you may have (e.g., for getting a monetary advance for 

emergency work) to the State PA Representative conducting the 

briefing.

9 If you are a recognized Indian Tribal government, confer with 

the relevant State representatives and FEMA to determine if you 

will be managing your own grant or applying as an applicant 

under a State grant.

9 You may obtain a copy of a Pre-application form (FEMA Form 

90-49) (Request for Public Assistance) from the State emergency 

management organization, at the Applicants’ Briefing, or 

through FEMA’s Web site at www.fema.gov/government/grant/

pa/forms.shtm.
10 Chapter 2: Getting Started

Getting a Monetary Advance for Your Emergency Work

Immediate Needs Funding. When conducting the Preliminary Damage 

Assessment, FEMA and the State identify any circumstances in which there 

are immediate needs. If a major disaster or emergency is declared by the 

President, and the State determines that damage costs require immediate 

cash flow, the State may request Immediate Needs Funding. Up to 50 

percent of the Federal share estimate for emergency work to be completed 

within 60 days will then be placed in the State’s account. The State is 

responsible for disbursement. Because this money can be made available 

in advance of the normal Public Assistance Program process following the 

declaration of a major disaster or emergency, paperwork and processing 

times are reduced and you may receive emergency funds sooner. Your 

jurisdiction must have participated in the Preliminary Damage Assessment 

and be included in the President’s declaration to qualify for Immediate 

Needs Funding.

This funding is for the most urgent work during the response to, or 

immediately after a major disaster or emergency. The funds may be 

provided to any eligible applicant for eligible emergency work performed 

immediately and paid for within the first 60 days following declaration. 

The funding is for emergency work (i.e., debris removal and emergency 

protective measures). Additional discussion of emergency work is provided 

in CHAPTER 3. Immediate Needs Funding can also be used for overtime 

payroll, equipment costs, and materials purchases, and contracts when 

these costs are incurred for emergency work. Immediate Needs Funding 

is not intended for permanent work, work that involves environmental or 

historic concerns, work covered by insurance, large debris or demolition 

projects that require more than 60 days to complete, or debris removal 

and disposal within the Coastal Barrier Resources System. Any Immediate 

Needs Funding you receive will be offset by the costs of your actual 

emergency work projects as the Subgrant Applications (Project Worksheets) 

are received. Your eligible permanent work costs will not be obligated until 

your Immediate Needs Funding is reimbursed. The funding for eligible 

permanent work costs is requested through the Subgrant Application 

(Project Worksheet) process.

What do I need to do to receive Immediate Needs Funding?

9 If your damages have been surveyed in the Preliminary Damage 

Assessment, you may be eligible for Immediate Needs Funding. 
Chapter 2: Getting Started 11

9 Your State will notify you about how to apply for Immediate 

Needs Funding. Typically the State will ask you to send a letter 

of request to a designated State official. In addition, you must 

submit a completed Pre-application (Request for Public Assistance) 

(FEMA Form 90-49) before the State will release any Immediate 

Needs Funding. 

9 You will need documentation to support the costs you claim 

under Immediate Needs Funding procedures. Failure to 

document costs will result in loss of the funding.

Expedited Payment. The Expedited Payment is similar to Immediate Needs 

Funding. Though the State requests Immediate Needs Funding on behalf 

of all applicants, an individual applicant may request an Expedited Payment 

on its own. The State will need to process your request and disburse the 

funds that FEMA obligates.

Expedited Payments are made for applicants who participated in the 

Preliminary Damage Assessment and who file a Pre-application (Request 

for Public Assistance). FEMA will obligate 50 percent of the Federal share 

of the estimated costs of work under Categories A and B (Debris Removal 

and Emergency Protective Measures) as estimated during the Preliminary 

Damage Assessment. FEMA will make payment for Debris Removal within 

60 days after the estimate was made and no later than 90 days after the 

Pre-application (Request for Public Assistance) was submitted. Because the 

money can be made available on the basis of an estimate, paperwork and 

processing times are reduced and you can receive emergency funds sooner 

than if you followed the normal process. Expedited Payments are possible 

only if your county has been included in the President’s declaration.

Expedited payments are not intended for work that involves environmental 

or historic concerns or work that is covered by insurance. Any Expedited 

Payment you receive will be offset by the costs of your actual emergency 

work Subgrant Applications (Project Worksheets) as they are received. As with 

Immediate Needs Funding, your eligible permanent work costs will not be 

obligated until your Expedited Payment is reimbursed. The funding for 

eligible permanent work costs is requested through a Subgrant Application 

(Project Worksheet).

Chapter 3: Funding Information You Need to Know 13

CHAPTER 3

Funding Information 

You Need to Know

FEMA can help you with your costs for debris removal, emergency 

protective measures, and infrastructure restoration. A summary of 

eligibility follows, but you will need to work with the FEMA PAC Crew 

Leader and the State PA Representative assigned to you to determine if 

your facilities, work, and costs meet Public Assistance Program eligibility 

criteria. You can obtain more information on eligibility from your FEMA 

PAC Crew Leader and on the FEMA Web site www.fema.gov/government/

grant/pa/. Your FEMA PAC Crew Leader can also advise you on the special 

eligibility requirements of PNP facilities (see also APPENDIX A).

Debris Removal (Category A)

FEMA can assist you with funding for the clearance, removal, and/

or disposal of items such as trees, woody debris, sand, mud, silt, gravel, 

damaged building components and contents, wreckage produced during 

the conduct of emergency work, and other disaster-related wreckage. For 

debris removal to be eligible, the work must be necessary to:

 Eliminate an immediate threat to lives or public health and safety

 Eliminate immediate threats of significant damage to improved 

public or private property when the measures are cost effective 

 Ensure the economic recovery of the affected community to the 

benefit of the community-at-large

 Mitigate the risk to life and property by removing substantially 

damaged structures as needed to convert property acquired using 

FEMA hazard mitigation program funds to uses compatible with open 

space, recreation, and wetland management practices

Debris removal is the responsibility of government agencies. If necessary, 

your FEMA PAC Crew Leader can advise you on the few situations in which 

debris removal by PNP organizations may be eligible.
14 Chapter 3: Funding Information You Need to Know

Removal of debris on public property that is required to allow continued 

safe operation of governmental functions or to alleviate an immediate 

threat is generally eligible. Debris on private property rarely meets the 

public interest standard because it does not affect the public-at-large and 

most often is not the legal responsibility of a State or local government. 

Debris removal from private property is usually the responsibility of the 

individual property owner.

Emergency Protective Measures (Category B)

FEMA can also help pay for actions taken by the community (almost always 

government agencies) before, during, and after a disaster to save lives, 

protect public health and safety, and prevent damage to improved public 

and private property. Examples of measures that may be eligible include:

 Warning of risks and hazards

 Search and rescue

 Emergency evacuations

 Emergency mass care

 Rescue, evacuation, transportation, care, shelter, and essential needs 

for humans affected by the outbreak and spread of an influenza 

pandemic

 Protection for an eligible facility

 Security in the disaster area

 Provision of food, water, ice, and other essential items at central 

distribution points

 Temporary generators for facilities that provide health and safety 

services

 Rescue, care, shelter, and essential needs for household pets and 

service animals if claimed by a State or local government

 Temporary facilities for schools and essential community services

 Emergency operations centers to coordinate and direct the response 

to a disaster

 Demolition and removal of public and private buildings and 

structures that pose an immediate threat to the safety of the general 

public
Chapter 3: Funding Information You Need to Know 15

 Removal of health and safety hazards

 Construction of emergency protection measures to protect lives or 

improved property (for example, temporary levees)

 Emergency measures to prevent further damage to an otherwise 

eligible facility (for example, boarding windows)

 Restoration of access

 Inspections if necessary to determine whether structures pose an 

immediate threat to public health or safety

Permanent Work (Categories C-G)

FEMA can also help pay to restore facilities through repair or restoration, 

to pre-disaster design, function, and capacity in accordance with codes or 

standards. 

 Roads and Bridges (Category C). Roads (paved, gravel, and dirt) are 

eligible for permanent repair or replacement, unless they are FederalAid roads (which are supported by the FHWA). Eligible work includes 

repair to surfaces, bases, shoulders, ditches, culverts, low water 

crossings, and other features, such as guardrails. Repairs necessary as 

the result of normal deterioration, such as alligator cracking or rotted 

timbers, are considered pre-disaster damage and not eligible. Eligible 

work for bridges includes decking and pavement, piers, girders, 

abutments, slope protection, and approaches. 

 Water Control Facilities (Category D). Permanent repairs are not 

eligible for flood control works and federally funded shore protective 

devices since the primary authority for the restoration of those 

facilities is with the U.S. Army Corps of Engineers and the National 

Resources Conservation Service. But FEMA can help with permanent 

repairs for other water control facilities, such as those that were built 

for channel alignment, recreation, navigation, land reclamation, 

maintenance of fish and wildlife habitat, interior drainage, irrigation, 

and erosion prevention. (See APPENDIX A for special requirements 

for PNP irrigation facilities.)

 Buildings and Equipment (Category E). Buildings, structural 

components, interior systems (e.g., electrical and mechanical 

systems), building contents, vehicles, and equipment are eligible 

for repair or replacement. Replacement of pre-disaster quantities of 

consumable supplies and inventory, the replacement of library books 

and publications, and the stabilization (but not re-creation from 
16 Chapter 3: Funding Information You Need to Know

original sources) of damaged files are also eligible. If disaster-related 

mud, silt, or other accumulated debris does not pose an immediate 

threat but its removal is necessary to restore the building, its removal 

is eligible as permanent work; if it does pose an immediate threat, the 

disaster-related work will fall under Category A (Debris Removal). 

 Utilities (Category F). The repair or restoration of utilities is also 

eligible. Utilities include:

9 Water treatment plants and delivery systems

9 Power generation and distribution facilities, including natural 

gas systems, wind turbines, generators, substations, and power 

lines

9 Sewage collection systems and treatment plants 

9 Communications

You are responsible for determining the extent of damage to utility 

systems. General surveys to look for damage are not eligible, but if you 

discover damage, the inspection of the damaged section is eligible. 

Any increased operating expenses resulting from the disaster or lost 

revenue are not eligible; however, the cost of establishing temporary 

emergency utility services in the event of a shut-down may be eligible 

as emergency work. 

 Parks, Recreational Areas, and Other Facilities (Category G). Publicly 

owned facilities in this category are generally eligible. They include:

9 Playground and picnic equipment

9 Swimming pools, golf courses, and tennis courts

9 Piers 

9 Some beaches (you will need to work with your FEMA Project 

Specialist to determine if yours meet the criteria for assistance) 

9 Mass transit facilities, such as rail systems

9 Facilities that do not fit in Categories C-F, such as fish hatcheries 

9 Supporting facilities (e.g., roads, buildings, and utilities) that are 

located in parks and recreational areas, subject to the eligibility 

criteria for Categories C, D, E, and F 
Chapter 3: Funding Information You Need to Know 17

Natural features, such as the banks of streams, are not facilities and 

are not eligible for repair. In addition, the replacement of trees, 

shrubs, and other ground cover is not eligible for any facility in any 

category of work. This means that replacement of grass and sod 

(including for recreational and sports areas) generally is not eligible 

for the Public Assistance Program. The one exception is grass or sod 

required as part of another measure to stabilize a slope and minimize 

erosion. 

Recreational areas owned by PNP organizations are not eligible for 

assistance.

 Fire Management (Category H). Fire Management Assistance 

declarations are approved by FEMA’s Recovery Directorate 

Assistant Administrator, or his/her designee, in response to a State’s 

request for fire management assistance. FEMA’s Fire Management 

Assistance Grant Program is authorized by the Stafford Act and is 

available to States, local governments, and Indian Tribal governments. 

It is intended to aid with the mitigation, management, and control 

of fires burning on publicly- or privately-owned forests or grasslands 

that would threaten such destruction as would constitute a major 

disaster. The grants cover fire-related activities, such as firefighting 

and support services, pre-positioning Federal, out-of-state, and 

international resources for up to 21 days, evacuations, sheltering, 

traffic control, emergency operations centers, and temporary repairs 

of damage caused by firefighting activities. More information on the 

grants can be obtained at www.fema.gov/government/grant/fmagp/

index. 

Management Costs (Declarations On or After

November 13, 2007)

The Stafford Act provides that the State may request reimbursement for 

its management and administration of disaster assistance, as well as yours. 

The maximum amount of funding that can be requested from FEMA is 

a set percentage of the Federal share of assistance granted for the major 

disaster or emergency. For events declared on or after November 13, 2007, 

the initial management cost rate is set at 3.34 percent for major disaster 

declarations and 3.9 percent for emergency declarations. These rates 

cover management costs of both the State and the applicants. The State 

determines the portion distributed to you. FEMA will review the two rates 

no later than November 13, 2010.
18 Chapter 3: Funding Information You Need to Know

The allowance covers any indirect cost, any administrative expense, and 

any other expense for the major disaster or emergency that is not directly 

chargeable to a specific project. The State will not receive any separate 

funding for State Management Administrative Costs and will not be 

reimbursed for State indirect costs. Records need to be kept on how the 

funds were spent and any surplus is subject to reimbursement to FEMA. In 

addition to management costs, FEMA will reimburse direct administrative 

costs incurred by the State and applicants that are properly documented 

and directly chargeable on a Subgrant Application (Project Worksheet) for a 

specific project.

Administrative Costs (Declarations Before November 13, 2007)

For major disasters or emergencies declared before November 13, 2007, the 

allowance described in the Public Assistance Guide (FEMA 322) and Public 

Assistance Policy Digest (FEMA 321) for the State and applicants will continue 

to apply. 

 The administrative allowance described there is intended to meet 

your costs for administering your funding. It covers your direct and 

indirect costs incurred in requesting, obtaining, and administering 

Public Assistance funding (e.g., identifying damage, attending the 

Applicants’ Briefing, completing the Pre-application [Request for 

Public Assistance], preparing Subgrant Applications [Project Worksheets], 

establishing files, providing documentation, assessing damage, 

collecting cost data, developing cost estimates, working with the 

State during project monitoring, final inspections, and audits, and 

preparing for audits). 

 It is not intended to cover direct costs of managing specific projects 

because these costs generally are eligible as part of the grant for each 

project. 

 The administrative allowance is calculated as a percentage of total 

eligible costs that are approved for you in a given major disaster or 

emergency. The percentage is calculated using the same sliding scale 

used for the State’s administrative allowance. 

 For expenditures beyond eight years from a major disaster declaration 

date or beyond two years from an emergency declaration date, special 

restrictions apply.

 Records need to be kept on how the funds were spent and any surplus 

is subject to reimbursement to FEMA.
Chapter 3: Funding Information You Need to Know 19

What do I need to do?

9 Identify your damages and work with your State PA 

Representative to request assistance with your costs.

9 For major disasters or emergencies declared before 

November 13, 2007, FEMA automatically calculates your 

allowance for administrative costs when processing your 

Subgrant Applications (Project Worksheets) and forwards your 

allowance to the State. 

9 For major disasters or emergencies declared on or after 

November 13, 2007, you will need to work with your State PA 

Representative to establish the amount and method of delivery 

of your allowance for management costs. Keep documentation 

on how the funds were spent because funding in excess of costs 

you can document must be returned to FEMA.

Chapter 4: Kickoff Meeting 21

CHAPTER 4

Kickoff Meeting

Purpose of the Kickoff Meeting

The Kickoff Meeting is a substantive, project-oriented meeting for you, 

your State PA Representative, and FEMA. It differs from the Applicants’ 

Briefing conducted by the State at the onset of disaster operations. While 

the Applicants’ Briefing gives a general overview of the Public Assistance 

Program and description of the application process, this meeting is 

conducted specifically for you by your FEMA PAC Crew Leader in order 

to provide a much more detailed review of the Public Assistance Program 

and an opportunity to discuss your specific needs. It will include eligibility 

and documentation information that pertains to your organization. You will 

also meet the FEMA Project Specialist who will be working with you on your 

projects at this meeting.

The FEMA PAC Crew Leader will also discuss Special Considerations (i.e., 

insurance, hazard mitigation opportunities, and compliance with historic 

preservation and environmental laws, including floodplain management) 

that could potentially affect the type and amount of assistance available 

and the documentation needed. For this reason, Technical Specialists will 

be included in the meeting if Special Considerations issues are anticipated. 

(See APPENDICES B, C, D, and E for further information on Special 

Considerations.) Satisfactorily addressing Special Considerations on each 

project is critically important, as failure to do so may jeopardize the funding 

of your project.

The Kickoff Meeting is the first of what will be many project-oriented 

contacts among you, your State PA Representative, and FEMA. By the 

end of the meeting, you will know what to expect and will receive the 

information you need to proceed with the Public Assistance Program 

process. This is a good opportunity to request clarification of anything you 

do not understand and raise any issues that concern you.

What do I need to do?

9 You can expect to be contacted by your FEMA PAC Crew Leader 

or State PA Representative within one week after submission 

of your Pre-application form (Request for Public Assistance). If 
22 Chapter 4: Kickoff Meeting

you have not been contacted after one week, call your State PA 

Representative to arrange the first meeting.

9 In preparation for the meeting, compile your list of damages 

by location. If you can, include a description of the damage 

and scope of work, the nature of the work (i.e., debris removal, 

emergency measures, or permanent restoration), estimated 

cost, whether you will be completing the work with your own 

force account resources or by contract, whether the facility was 

damaged in a prior disaster, and whether you are interested in 

hazard mitigation measures that may prevent future damage. 

9 Identify circumstances that require special review, such 

as insurance coverage, environmental issues, floodplain 

management issues, and historic preservation concerns. The 

earlier these conditions are known, the faster they can be 

addressed; and they must be addressed before project funding 

can be approved.

9 Bring your insurance policies and settlement documents.

9 Be prepared to identify your priority projects.

9 Be prepared to discuss your need for Expedited Payments 

or Immediate Needs Funding, if you have received either or 

have decided you need one or the other. Cost estimates with 

justification and supporting documentation will be necessary, 

and you will need to submit documents to account for all 

incurred costs.

9 Consider inviting those from your organization with a working 

knowledge of the needed repairs and emergency work costs, 

your public works officials who will be managing the repairs, 

a procurement official, a financial management official, a risk 

manager who is familiar with your insurance coverage, and the 

individual(s) who will be keeping progress and financial records 

on each of the projects.
Chapter 5: Funding Options 23

CHAPTER 5

Funding Options

Infrastructure Restoration Options

You have several options regarding the restoration of your damaged facility. 

They include the following possibilities:

 Repair the facility to current codes and standards. (Repair)

 Repair the facility and include FEMA-funded hazard mitigation 

measures. (Repair)

 Pay for improvements yourself as you repair the facility either on its 

current site or at a new location. (Improved Project)

 Repair the facility to a code or standard that exceeds FEMA-approved 

codes and standards. (Improved Project)

 Replace the facility because it is damaged beyond repair. 

(Replacement)

 Relocate the facility out of a floodplain. (Replacement)

 Build a large facility to replace several damaged facilities in separate 

locations. (Improved Project)

 Do not repair a damaged facility that is no longer needed and use the 

funds for other purposes. (Alternate Project)

 Use some of the Public Assistance funds to make the damaged facility 

safe and secure (repairing it later on your own), and use the balance 

for other eligible projects. (Alternate Project)

Repair or Replacement Projects

FEMA provides assistance to help you restore an eligible facility to its predisaster design, function, and capacity. As part of the basic restoration, 

FEMA may also pay for upgrades that are necessary to meet the 

requirements of reasonable applicable codes and standards and may pay 

for reasonable and cost-effective hazard mitigation measures as part of the 

repair. PNP organizations have some special provisions for their eligibility. 

(See APPENDIX A for more information about PNP Organizations.) 
24 Chapter 5: Funding Options

If a facility is damaged to the point where you think it should be replaced 

rather than repaired, the following calculation, known as the 50 Percent 

Rule, is used to determine whether replacement is eligible.

Your FEMA PAC Crew Leader will guide you through your eligible costs 

and the calculation to determine whether your facility is damaged beyond 

repair. 

Your FEMA PAC Crew Leader will also be able to guide you through your 

decision to improve your facility as you restore it or even to not repair your 

facility at all.

Improved Projects

Most applicants use FEMA funds to simply return their damaged facilities to 

their pre-disaster function and capacity. But the repair of disaster damage is 

also an opportunity to improve on the facility that was damaged. If you want 

to do this, you must use your own funds for the improvements and FEMA 

funds for the basic repair. Examples of improved projects include: 

 Laying asphalt on a gravel road

 Replacing a firehouse that originally had two bays with one that has 

three

 Increasing the capacity or changing the design of a school 

FEMA will provide the funding for the FEMA share of the eligible costs for 

repairing your facility. Additional costs are your responsibility.

If you are contemplating an improved project, here are some things to keep 

in mind:

 The improved project must have the same function and at least the 

pre-disaster capacity as that of the pre-disaster facility to be eligible. 

50 Percent Rule

If the repair cost divided by the replacement cost is less than 

0.5, then only the repair cost is eligible.

If the repair cost divided by the replacement cost is more than 

or equal to 0.5, then the replacement cost is eligible.
Chapter 5: Funding Options 25

 Time limits that would be associated with repairing the damaged 

facility to its pre-disaster design apply to the improved project 

construction. CHAPTER 8 includes additional discussion of time 

limits. 

 Funding for improved projects is capped at the Federal share of 

the costs that would be associated with repairing or replacing the 

damaged facility to its pre-disaster design, or to the actual costs of 

completing the improved project, whichever is less. For the most part, 

funding for approved work cannot be tracked within the improved 

project because of physical changes or contracting arrangements. 

However, if eligible repair or replacement costs exceed the original 

estimate and costs can be documented (i.e., you were to track 

eligible costs separately from improvement costs), you may appeal 

for additional funds. CHAPTER 8 includes additional discussion of 

appeals. 

 You must obtain approval for an improved project from the State 

prior to the start of construction. Any improved project that results 

in a significant change from the pre-disaster configuration (i.e., 

different location, footprint, function, or size) of the facility must also 

be approved by FEMA prior to construction to ensure completion of 

the appropriate historic preservation and environmental compliance 

reviews.

 Any additional costs for complying with codes and standards or 

compliance with environmental and historic preservation laws, 

regulations, and Executive Orders (EOs) required by the construction 

of the improvements, but not required by the eligible scope of work 

for repair, are not eligible. 

 Funds to construct the improved project can be combined with 

a grant from another Federal agency and/or a FEMA-approved 

alternate project; however, Federal grants cannot be used to meet the 

State or local cost-share requirement unless the legislation for the 

other grant allows such use (e.g., the Community Development Block 

Grant program).

 If the original facility is being repaired and improvements are being 

added, FEMA may provide assistance with hazard mitigation measures 

under Section 406 of the Stafford Act. These funds must be applied 

to the original facility. Improved projects that involve a new facility 

on the same site or on a different site are not eligible for Section 406 

Hazard Mitigation funding.
26 Chapter 5: Funding Options

Alternate Projects

Occasionally, an applicant may determine that the public welfare is not 

best served by restoring the facility or the function using FEMA funds. This 

usually occurs when the service provided by the facility is no longer needed, 

even though the facility may have been in use at the time of the disaster. If 

this happens, you may apply through the State to FEMA to use the eligible 

funds for your damaged facility for an alternate project, that is, another 

public purpose. FEMA will estimate all eligible costs of repairing your 

facility, evaluate your proposal to use the funds for another purpose, and 

obligate the FEMA share of an approved proposal.

Examples of alternate projects include:

 Repair or expansion of other public facilities

 Construction of new public facilities

 Demolition of the original structure

 Purchase of capital equipment

 Funding of cost-effective hazard mitigation measures in the area 

affected by the disaster

 Funding project shortfalls due to mandatory National Flood 

Insurance Program (NFIP) reductions on buildings in floodplains

 Supplemental funds for an improved project

If you are contemplating an alternate project, keep the following in mind:

 Funds may be used on more than one alternate project.

 An alternate project option may be proposed only for permanent 

restoration projects within the declared disaster area.

 Funds for emergency work (i.e., debris removal and emergency 

protective measures) cannot be used for alternate projects. 
Chapter 5: Funding Options 27

 Alternate projects for governmental entities are eligible for 90 

percent of the approved Federal share of the estimated eligible costs 

associated with repairing the damaged facility to its pre-disaster 

design, or 90 percent of the approved Federal share of the actual costs 

of completing the alternate project, whichever is less. For example:

estimate of eligible damage

adjustment to account for percentage of Federal cost share 

the Federal share 

10 percent reduction for alternate project funding 

maximum grant amount you can receive

You must spend at least $75,000 on approved alternate projects 

to receive $67,500 in Federal funds.

 Alternate projects for PNP organizations are eligible for 75 percent 

of the approved Federal share, or 75 percent of the approved 

Federal share of the actual costs of completing the alternate project, 

whichever is less. The alternate project must also be one that would 

be eligible for Public Assistance funding in a subsequent disaster. The 

calculation would be similar to the one above for public entities with 

the exception that the $75,000 would be multiplied by .75 (instead of 

.90) to create the 25 percent reduction for alternate projects of PNP 

organizations and the maximum amount of Federal funds would be 

$56,250. See APPENDIX A for other eligibility provisions for PNP 

organizations.

 At a minimum, your original facility must be rendered safe and secure 

or demolished. If you opt to keep the damaged facility for a later or 

other use, it will not be eligible for Public Assistance Program funding 

in a subsequent disaster unless it is repaired. 

 The costs of complying with laws, regulations, and Executive Orders 

on the damaged facility are considered project costs for purposes of 

calculating the grant. Executive Orders are legally binding orders 

issued by the President to Federal Administrative Agencies. However, 

any additional costs for complying with codes and standards or 

compliance with environmental and historic preservation laws, 

regulations, and Executive Orders for the alternate facility are not 

eligible.
28 Chapter 5: Funding Options

 The proposed alternate project may not be located in the regulatory 

floodway and will have to be insured if located in the 100-year 

floodplain. Funding may not be used for operating costs or to meet 

the State or local share requirement on other Public Assistance 

projects or projects that utilize other Federal grants unless the 

legislation for the other grant allows such use (e.g., the Community 

Development Block Grant program). 

 Section 406 (Stafford Act) hazard mitigation funds cannot be applied 

to an alternate project. 

 FEMA must ensure that the proposed projects are an appropriate use 

of funds and comply with environmental and historic preservation 

laws.

What do I need to do?

9 Assist with the completion of the Subgrant Application (Project 

Worksheets) for your damaged facilities, even if you have not yet 

decided whether you might opt for an improved or alternate 

project. You and FEMA need to establish your eligible disaster 

damages so that you will know the amount of funds potentially 

available to you.

9 Decide early whether or not you intend to restore your damaged 

facility and, if not, how you want to use the eligible funds.

9 Discuss your options with your State PA Representative and your 

FEMA PAC Crew Leader.

9 You must obtain approval for an alternate project from the 

State prior to the start of construction. Any alternate project 

that results in a significant change from the pre-disaster 

configuration (that is, different location, footprint, function, 

or size) of the facility must also be approved by FEMA prior to 

construction to ensure completion of the appropriate historic 

preservation and environmental compliance reviews.

9 You must submit any proposal for an alternate project through 

the State to FEMA. FEMA approval is required for all alternate 

project proposals. Do not start demolition or construction 

without FEMA approval.
Chapter 6: Projects – How They Are Paid 29

CHAPTER 6

Projects – How 

They Are Paid

Overview

Under the Public Assistance Program, FEMA provides eligible grant funds 

to the State. The State then provides the Federal share of funding to you for 

your projects from the overall grant.

Your projects are categorized as either large or small, as determined by the 

estimated cost of eligible damages. This separation facilitates project review, 

approval, and funding. The cost threshold that distinguishes large from 

small projects changes annually and is published in the Federal Register. 

The threshold is $63,200 for the fiscal year ending September 30, 2010.

 Small Projects < $63,200

 Large Projects ≥ $63,200

Small project funding is based on estimated costs, if actual costs are not 

yet available. Payment is final, made on the basis of the initial approved 

amount, whether estimated or actual. Subgrant Applications (Project 

Worksheets) are not revised unless there are gross errors, omissions, or 

changes in scope; this occurs very rarely. If they are revised, they may 

change in funding and/or scope of work. 

Large project funding is based on documented actual costs. Because of the 

complexity and nature of most large projects, work is typically not complete 

at the time of FEMA approval. Therefore, most large projects are initially 

approved based on estimated costs. Funds generally are made available to 

you on a progress payment basis as you complete work. 

Small Projects

Payment for small projects is made at the time of project approval on the 

basis of the estimate. The State is required to make payment of the Federal 

share to you as soon as practicable after FEMA has obligated the funds. 

The advantage of the small project process is that funds are available as 
30 Chapter 6: Projects – How They Are Paid

the Subgrant Applications (Project Worksheets) are approved, rather than 

reimbursed after you submit documentation of incurred costs.

Because small projects are likely to be similar to work you do on a regular 

basis, you may want to expedite processing further by preparing the 

Subgrant Applications (Project Worksheets) for your small projects on your 

own. If you do, FEMA will provide guidance, validate a sample, and then 

obligate funds based on a successful validation. As an alternative, you may 

ask your FEMA Project Specialist to complete your Subgrant Applications 

(Project Worksheets).

The funding for individual small projects is fixed, regardless of the final 

costs incurred. Generally, FEMA does not perform an inspection of 

completed small projects; however, the State must certify that the applicant 

completed the work in compliance with all applicable laws, regulations, and 

policies. Therefore, the State may decide to review some or all of your small 

projects.

If you spend less than the amount FEMA approved, the Federal share 

will not be reduced to match actual costs. However, if you incur costs 

significantly greater than the total amount approved for all of your small 

projects, you may appeal for additional funding. Note that this opportunity 

applies only to a significant net cost overrun for all of your small projects, 

not to an overrun for an individual project. If you request additional funds, 

it must be done as an appeal and submitted within 60 days of completion of 

your last small project. You should be prepared for a complete audit of all 

your small projects if you request additional funds. 

Small project validation. If you prepare your own Subgrant Applications 

(Project Worksheets), FEMA will conduct a validation of the projects to 

confirm that you understand the documentation and eligibility provisions 

of the Public Assistance Program and that you are capturing all eligible 

costs. Your records are the basis for validation.

The sample validated will be limited to the minimum amount of review 

needed to ensure statutory and regulatory compliance. If the projects are 

submitted within the first 60 days after the Kickoff Meeting, this will be 20 

percent of all your small projects. For projects submitted after 60 days, 100 

percent will be validated. Validation can normally be completed within 15 

days of submission of all Subgrant Applications (Project Worksheets) to the 

FEMA PAC Crew Leader.

The FEMA PAC Crew Leader will review each worksheet to ensure the 

scope of work is complete and that all Special Considerations have been 

identified. The FEMA PAC Crew Leader, with input from the State, 
Chapter 6: Projects – How They Are Paid 31

will select two samples from all the small projects you have submitted. 

Each sample is made up of 20 percent of the total small projects. If 

the first sample does not pass validation, FEMA will conduct a second 

validation using the remaining sample. If you have four or fewer Subgrant 

Applications (Project Worksheets), a minimum of one Subgrant Application 

(Project Worksheet) will always be validated.

Validation, which is generally done by your FEMA Project Specialist, 

includes the following steps:

 Visit the sites to confirm all aspects of the project description are 

accurate and complete and that all Special Considerations have been 

identified. 

 Confirm the description of damage and dimensions is complete, 

accurate, and eligible. 

 Confirm the scope of work is complete, accurate, and eligible. 

 Review available actual cost records to ensure completeness, accuracy, 

and eligibility. 

 Review your estimated costs to ensure completeness, accuracy, 

reasonableness, and eligibility. 

Small projects with Special Considerations (i.e., insurance, hazard 

mitigation measures, historic preservation, and environmental compliance, 

including floodplain management) will be individually funded as the 

Special Considerations issues are resolved. See APPENDICES B, C, D, 

AND E.

What do I need to do – small projects?

9 You can expedite the handling of your projects by identifying 

any Special Considerations (i.e., insurance, hazard mitigation, 

historic preservation, and environmental compliance, including 

floodplain management issues) that relate to your project.

9 If you do not want to prepare your own Subgrant Applications 

(Project Worksheets), notify your FEMA PAC Crew Leader so that 

FEMA will know to prepare them for you.

9 If you are preparing your own Subgrant Applications (Project 

Worksheets), notify the FEMA PAC Crew Leader when you have 

submitted all, or a large batch, of your small projects. Your 

FEMA PAC Crew Leader will schedule validation at a time 
32 Chapter 6: Projects – How They Are Paid

convenient for you, and let you know which projects have been 

selected for validation. 

9 You are responsible for documenting all claimed costs. Be 

sure your project file includes all cost records, computations, 

measurements, notes, pictures, plans, Special Considerations, 

and any other documentation related to your project. 

Large Projects

Large projects are funded based on actual costs. Here are the steps in 

processing a large project:

 Your FEMA Project Specialist and FEMA PAC Crew Leader work with 

you in preparing a Subgrant Application (Project Worksheet) describing 

damages, the scope of work to repair the damage, and a cost estimate. 

 Funding is contingent on the resolution of any Special Considerations 

issues. See APPENDICES B, C, D, AND E.

 FEMA initially approves funding using the cost estimate and obligates 

the Federal share of the funds to the State. 

 If the project’s scope of work changes, even if it does not affect 

the total project cost, you need to notify both your FEMA Project 

Specialist and State PA Representative so that FEMA can screen 

the changes for potential environmental impact and ensure that 

the changes in the scope of work are eligible for Public Assistance 

Program funding. 

 As the project proceeds, you may periodically request funds from 

the State to meet expenses that you have incurred or expect to occur 

in the near future. Expenses must be documented. In anticipating 

the need for payments to contractors, be sure to take into account 

the time that the State process requires for approval of requests and 

disbursement. Each State handles disbursements differently, and 

details for your State’s procedures will be explained at the Applicants’ 

Briefing. 

 When the project is complete, you inform the State and the State will 

determine the final cost of accomplishing the eligible work, often 

performing inspections or audits to do so. The State then reconciles 

the actual costs with the Subgrant Application (Project Worksheet) 

estimate and transmits the information on the completed project to 

FEMA, certifying that the costs were incurred in the completion of 

eligible work.
Chapter 6: Projects – How They Are Paid 33

 After reviewing the State’s report and conducting such inspections or 

audits as necessary to verify eligible costs, FEMA may adjust (obligate/

de-obligate) the amount of the Subgrant Application (Project 

Worksheet) to reflect the actual cost of the eligible work. 

What do I need to do – large projects?

9 Identify facilities, damage, and work needed.

9 Take photographs of damage.

9 You can expedite the handling of your large projects by 

identifying any Special Considerations (i.e., insurance, 

hazard mitigation, historic preservation, and environmental 

compliance, including floodplain management issues) that 

relate to your project early.

9 The State cannot provide funds for costs that are outside 

the scope of work approved by FEMA. Therefore, you need 

to contact the State right away if you foresee or identify any 

changes to the scope of work or costs prior to or during 

performance of the work. Do not assume you can wait to report 

changes and that they will be approved. Since an inspection 

may be required, be sure that the damaged element can be 

inspected before it is repaired. Approval is needed to deviate 

from the scope of work and cost and a version to the Subgrant 

Application (Project Worksheet) is normally prepared. 

9 You are responsible for maintaining all source documentation 

and providing FEMA with the documentation needed to support 

your Subgrant Applications (Project Worksheets). All source 

documentation is needed for audit and closeout.

Chapter 7: Project Worksheets and Cost Estimating 35

CHAPTER 7

Subgrant Applications 

(Project Worksheets) 

and Cost Estimating

General

Subgrant Applications (Project Worksheets) are the primary form used to 

document the information on your damages (i.e., locations, damage 

description and dimensions, scope of work, Special Considerations, 

and cost estimates). They supply FEMA with the information necessary 

to approve funding under the Public Assistance Program. Because the 

Subgrant Applications (Project Worksheets) are such important documents, 

FEMA will assign a FEMA Project Specialist to you to either help you 

complete the forms or complete the forms for you. The FEMA Project 

Specialist will call upon other Technical Specialists, as needed, to assist 

in developing the damage description, scope of work, and cost estimates, 

and to help you prepare hazard mitigation proposals, review insurance 

coverage, identify historic preservation issues, identify environmental issues, 

etc.

Each project must be documented on a separate Subgrant Application 

(Project Worksheet). Generally, each facility requires a separate Subgrant 

Application (Project Worksheet), but sometimes work for multiple facilities 

can be combined if there is a logical method of performing work required 

as a result of the declared event. This option offers flexibility in organizing 

and managing the work around your needs. For example, work that occurs 

at multiple sites, such as repairs to several washouts along a road or debris 

removal within specific boundaries could be shown as one project, as could 

work within a single jurisdiction (for example, all work in a park may be a 

project). Work also may be combined by:

 Type of facility (e.g., all sewer pump stations)

 System (e.g., repair of several breaks in a water distribution system, 

repair of paved roads, or repair of gravel roads)
36 Chapter 7: Project Worksheets and Cost Estimating

 Boundaries (e.g., power lines in sectors or roads in a district)

 Method of work (e.g., work under one contract, work by force 

account labor, or a group of contracts under one contractor)

The FEMA PAC Crew Leader is responsible for ensuring that the resulting 

project is logical and consistent with other FEMA guidance. 

There are some other things you need to know about combining work. 

 Categories of permanent work (Categories C-G) may not be 

combined.

 A group of facilities at one location (e.g., a campus) may not be 

combined to be treated as a single facility or described as one project. 

 Emergency work and permanent work may be combined into one 

project only when the emergency work is incidental to the permanent 

work. If the combination is appropriate, the emergency work needs 

to be evaluated separately from the permanent work to meet varying 

eligibility requirements (e.g., force account regular time is eligible for 

only permanent work). 

 If multiple sites are combined into one project with a total estimated 

cost above the large project threshold, that project will be considered 

a large project.

 Work with an estimated or actual cost of less than $1,000 is not 

eligible. If there is a reasonable relationship to other sites, they may 

be combined to meet the minimum threshold. They are eligible only 

if they are reasonably related.

 Including a site with Special Considerations issues with other sites 

in one project may delay funding for all if compliance issues are 

identified. The sites with Special Considerations should be prepared 

on separate Subgrant Applications (Project Worksheets).

 Single facilities may not be broken into multiple projects to create 

small projects.

Once you have consolidated similar work items into projects, you will need 

to fully document your damage and repair plan by completing a Subgrant 

Application (Project Worksheet) for each project. Although more than one 

site can be combined to make a project, only one project may be listed on a 

Subgrant Application (Project Worksheet).
Chapter 7: Project Worksheets and Cost Estimating 37

Your FEMA PAC Crew Leader will explain the advantages and disadvantages 

so that you can decide what works best for you.

Subgrant Application (Project Worksheet) Preparation

 DISASTER. Record the FEMA four-digit major disaster declaration 

number, disaster type, and the two-letter state abbreviation. For 

example:

FEMA-1234-DR-AL

FEMA-3305-EM-OK

 PROJECT NUMBER. For each Subgrant Application (Project 

Worksheet), two Project Numbers will be assigned: one defined by the 

FEMA Project Specialist during the development of the Subgrant 

Application (Project Worksheet) (and entered on the Subgrant 

Application (Project Worksheet) as it is developed) and an official one 

automatically assigned by the National Emergency Management 

Information System (NEMIS)/Emergency Management Mission 

Integrated Environment (EMMIE), FEMA’s electronic tracking 

systems, when the Subgrant Application (Project Worksheet) is entered 

into the automated system. The Project Number assigned during 

Subgrant Application (Project Worksheet) development can reflect a 

FEMA-prescribed format, or if none, the applicant’s own tracking 

system number. If neither is being used, the FEMA Project Specialist 

will assign a tracking number. The number may be no longer than 

seven characters and may include alpha, numeric, and special 

characters.

 PUBLIC ASSISTANCE IDENTIFICATION NUMBER (PA ID NO). 

Each applicant is assigned a unique identification number by FEMA. 

It is sometimes referred to as the Applicant’s Federal Information 

Processing Standards (FIPS) Number or the Applicant’s Identification 

Number. The number should be entered in the following format: 

XXX-XXXXX-XX. The first three digits identify the county where 

the applicant is located. If the first three digits are 000, the applicant 

is a State agency or has multiple facilities Statewide. The next five 

characters identify the particular applicant. The last two digits are 

used to identify departments or subdivisions within the applicant’s 

agency or organization. If you wish to have subdivisions within your 

PA ID NO (e.g., Police Department, Public Works Department, etc.), 

discuss that possibility with your FEMA PAC Crew Leader. 
38 Chapter 7: Project Worksheets and Cost Estimating

 DATE. This is the date the Subgrant Application (Project Worksheet) was 

prepared. The format is MM/DD/YYYY.

 CATEGORY. The FEMA Project Specialist will designate the category 

of work in this block. The possible categories are:

9 Emergency A - Debris Removal

9 Emergency B - Emergency Protective Measures

9 Permanent C - Roads and Bridges

9 Permanent D - Water Control Facilities

9 Permanent E - Buildings and Equipment

9 Permanent F - Utilities

9 Permanent G - Parks, Recreational Areas, and Other Facilities

 DAMAGED FACILITY. Identify the facility and describe its primary 

function.

9 If the project is a single site, enter the name of the facility 

and its basic function. For example, enter “Town Building C – 

Community Center”, “Debris Removal”, “Emergency Protective 

Measures”, “County Road 66” or “City Memorial Hospital.”

9 If the project consists of multiple sites, a general facility name 

can be provided in the block adding the reference “See Damage 

Description.”

9 If the project involves Emergency Work (Category A or B), 

identify both the type and location of response. For example, 

enter “Debris Removal – City of Charles Sector A” or “Police, 

Fire, and Rescue – Charles County Courthouse.”

9 If services are provided over time and multiple Subgrant 

Applications (Project Worksheets) are to be prepared for distinct 

durations, identify the duration in this block to clearly 

distinguish the project. For example, enter “Police Response – 

June 16-20, 2008.”

 WORK COMPLETE AS OF. Indicate the date the work was assessed 

and the percentage of work completed on that date. This is the date 

the FEMA and/or State PA Representative visited or reviewed the site. 

It may be different from the date provided in the DATE block. Record 

the date in the following format MM/DD/YYYY. If any percentage of 
Chapter 7: Project Worksheets and Cost Estimating 39

work is complete, actual costs and documentation should be provided 

for the work complete. The SCOPE OF WORK and PROJECT 

COSTS blocks should separate the details for “Work Completed” and 

“Work to Be Completed.” If the percentage of work completed does 

not match the percentage of costs incurred, explain why that is the 

case in the SCOPE OF WORK block.

 APPLICANT. This is the name of the government or legal entity to 

which the funds will be awarded. Applicant names should not be 

abbreviated.

 COUNTY. Enter the name of the county in which the damaged 

facility is located. If the damage is located in multiple eligible counties 

and the applicant wishes to combine the work, either confer with the 

State on State preferences or record “Multi-County” in this block and 

identify the specific counties in the DAMAGE DESCRIPTION AND 

DIMENSIONS and SCOPE OF WORK blocks.

 LOCATION. The exact location of the damaged facility must be 

described. This information must be specific enough to enable 

field personnel to easily locate the facility if a site visit is necessary. 

Some examples for location are: street address, intersection, 

and sector. Referring to activities taking place on a countywide, 

citywide, or jurisdiction-wide basis is the least preferred method and 

requires more specific supplemental information in the DAMAGE 

DESCRIPTION AND DIMENSIONS block. If there are multiple sites, 

enter “Multiple Sites (4)” and “see DAMAGE DESCRIPTION AND 

DIMENSIONS” (or other location at which they are entered on the 

Subgrant Application (Project Worksheet). Do not use facility names, as 

they may change over time.

 LATITUDE AND LONGITUDE. Enter the coordinates of the 

damaged site(s). If there are multiple sites, enter a primary location 

and identify the rest in the DAMAGE DESCRIPTION AND 

DIMENSIONS block. Do not use degrees, minutes, and seconds; 

instead, use up to three numbers before and up to five numbers after 

the decimal point.

 PREPARED BY/TITLE/SIGNATURE. Enter the name of the 

preparer and the person’s position title. The hard copy must be 

signed.

 APPLICANT REPRESENTATIVE/TITLE/SIGNATURE. Enter the 

name and title of your representative. The signature will generally 

indicate your concurrence with the Subgrant Application (Project 
40 Chapter 7: Project Worksheets and Cost Estimating

Worksheet) as prepared. If you do not concur with the Subgrant 

Application (Project Worksheet), describe the items of non-concurrence 

in the SCOPE OF WORK or in an attached memorandum or 

narrative. An applicant’s signature is not required in order to process 

the Subgrant Application (Project Worksheet).

 DAMAGE DESCRIPTION AND DIMENSIONS. The description 

of disaster-related damage to the facility, including the cause of the 

damage and the area affected, is entered in this block. This block 

supports the basic eligibility determination for the work and defines 

the expectations for the scope of work and associated costs. The 

primary items that must be included in this section are:

9 Description of the cause of damage. Provide a brief description 

of how the damage to the facility occurred, or what conditions 

of the disaster required the emergency service to be provided. 

For emergency work to be eligible, the Subgrant Application 

(Project Worksheet) must demonstrate that the disaster conditions 

caused an immediate threat. Therefore, describe the threat to 

health and safety or the threat to improved property.

9 The party responsible for fixing the damage (with ownership 

documents, leases, etc.).

9 Description of the pre-disaster condition of the facility. Include 

the pre-disaster design, function, and capacity and, if the facility 

was not in active use at the time of the disaster, explain why.

9 Quantification of specific disaster-related damages or emergency 

services provided. 

9 The latitude and longitude of each site, if there are multiple 

sites.

A Continuation Sheet can be used if more space is needed to 

continue the description. Make a statement at the end of the block, 

such as “See Continuation Sheet.” 

 SCOPE OF WORK. The description of work that has been completed 

and work that needs to be completed to repair disaster-related 

damages is entered in this block. The primary items that must be 

included are:

9 Description of the work necessary to remove and dispose of 

disaster-related debris, conduct emergency response measures, 
Chapter 7: Project Worksheets and Cost Estimating 41

or repair or replace the disaster-damaged facility to the predisaster condition.

9 Identification of “Work Completed” and “Work to Be 

Completed.”

9 Descriptions of any Special Considerations (i.e., insurance, 

hazard mitigation, historic preservation, and environmental 

compliance issues, including floodplain management) that 

affect the scope of work.

9 Description of any work that will restore the facility beyond its 

pre-disaster design, function, or capacity. Include relocations, 

replacements, alternate and improved projects, hazard 

mitigation proposals, and codes and standards.

9 Description of the basis for the cost estimate. The project cost 

section of the Subgrant Application (Project Worksheet) is limited 

to cost data. Therefore, a description of how the costs were 

determined should be included here. It should identify how 

the work was or will be done (e.g., by force account labor), the 

methodology for determining the cost, and an explanation of 

why the costs are reasonable.

FEMA will also document ineligible work, associated costs, and the 

basis of ineligibility in this block.

 SPECIAL CONSIDERATIONS. Special Considerations is a term 

used by the Public Assistance Program to capture all program issues 

other than eligibility. For disasters, these are usually insurance, hazard 

mitigation, historic preservation, environmental compliance, and 

floodplain management. Four questions on the Subgrant Application 

(Project Worksheet) address these key issues. If the answer to any of the 

questions is “yes” or “unsure,” an adequate explanation should be 

provided on the Special Consideration Questions form. FEMA Technical 

Specialists in the indicated areas will need to work with you on those 

issues.

 PROJECT COST. Project costs will be either estimated or actual. Only 

reasonable costs are eligible for FEMA assistance. A cost is reasonable 

if, in its nature and amount, it does not exceed that which would be 

incurred by a prudent person under the circumstances prevailing at 

the time the decision was made to incur the cost. In other words, a 

reasonable cost is a cost that is both fair and equitable for the type 

of work performed. The reasonable cost requirement applies to 
42 Chapter 7: Project Worksheets and Cost Estimating

all labor, materials, equipment, and contract costs awarded for the 

performance of eligible work. 

Getting your cost data. Once you have described your project, the 

eligible costs need to be determined. If the work has been completed, 

report the actual costs. If it has not been completed, estimate the 

costs. Generally, costs that are directly related to the performance of 

eligible work are eligible. The costs must be:

9 Reasonable and necessary to accomplish the work

9 Reduced by all applicable credits, such as anticipated insurance 

proceeds and salvage values

9 Compliant with Federal, State, and local requirements for 

competitive procurement, if the work is done by contract

For small projects, estimates are especially important because they 

become the fixed amount of the grant. For large projects, estimates 

will be adjusted as reasonable actual costs become known, but their 

accuracy is important for your budgeting and management. FEMA 

makes the final determination on the reasonableness of a cost.

For large projects, make cost estimates early in the process before the 

design phase begins. However, a detailed design of the restoration 

work may need to be prepared for complex projects before a viable 

cost estimate can be developed. In such cases, a grant for engineering 

and design services may be approved first. Once the design is 

complete, a cost estimate for the work is prepared or actual bids for 

the work are used as the basis for the grant. 

Costs for managing a project may also be included if the project is 

sufficiently large or complex to require them. Most small projects do 

not require project management above the first-level supervisor.

The most common methods of cost estimating are:

Unit costs – With this method, the project is broken down into 

elements based on the quantity of material that must be used to 

complete the work. For example, a culvert repair may be broken 

down into linear feet of pipe, cubic yards of fill, and square feet of 

pavement. The estimate for each of these items is a cost per unit that 

includes all labor, equipment, and material necessary to install that 

item (referred to as an in-place cost). 

Unit cost data developed by State or local governments may be 

used for estimating costs, if appropriate. Alternatively, commercially 
Chapter 7: Project Worksheets and Cost Estimating 43

available cost-estimating guides or data from local vendors and 

contractors may also be used. Also, FEMA has developed a list of unit 

costs for typical disaster repairs that may be used for estimating total 

costs. The order of preference for these cost data sources is: State and 

local data from previously completed projects, commercial estimating 

sources, and then FEMA cost codes.

Time, equipment, and materials for local force account work – This 

method may be used on projects that have been completed or will be 

completed by your employees, using your own (or rented) equipment 

and material purchased by you (or from your stock on hand). This 

method breaks costs down into labor, equipment, and materials. Costs 

must be thoroughly documented by payroll information, equipment 

logs or usage records, site or location, and other records, such as 

materials invoices, receipts, payment vouchers, warrants, or work 

orders. Final payment is based on documentation of your costs.

Equipment rates – A listing of equipment rates based on national data 

is available on the FEMA Web site at www.fema.gov/government/

grant/pa/eqrates.shtm. These rates, or your established rates, 

whichever are lower, should be used to compute applicant-owned 

equipment rates. Applicant equipment rates approved under State 

guidelines are usually eligible up to $75 per hour. 

Costs for use of cars and pick-up trucks are reimbursed on the basis 

of mileage if that rate is less costly than hourly rates. For all other 

types of equipment, rates typically include operation (including 

fuel), insurance, depreciation, and maintenance; they do not include 

the labor of the operator. As you complete your request, remember 

that labor hours need to match equipment use hours. Equipment 

used for less than half of the normally scheduled working date is 

reimbursable only for the hours used; however, if you can document 

that the equipment was used intermittently for more than half of the 

normally scheduled working hours for a given day, the entire day may 

be claimed. Stand-by time is not eligible. 

FEMA rates do not apply to contracted or rental equipment, unless 

the equipment is rented from another public entity. 

Contracts – Competitively bid contracts are used to summarize costs 

for work that you obtain from an outside source. In general, contract 

costs are for work already completed. If work has not yet begun on a 

project, but a contract has been bid or let for the eligible work, then 

the contract price can be used. To be eligible for reimbursement, 

procurements need to be awarded in compliance with State and 
44 Chapter 7: Project Worksheets and Cost Estimating

local procurement regulations and, generally, through full and open 

competition. 

The Stafford Act requires communities to give preference to local 

firms in the awarding of contracts in major disasters and emergencies 

to the extent it is feasible and practicable. This includes contracts with 

local organizations, firms, and individuals that support response and 

recovery activities in a declared major disaster or emergency area, 

such as debris clearance, distribution of supplies, and reconstruction. 

Preference may be given through a local area set-aside or an 

evaluation criterion. 

You must follow your established procurement policies when 

procuring goods or services with FEMA Public Assistance funds. Your 

established policies must adhere to all State, Tribal, and local laws 

and regulations as well as Federal standards. If your procurement 

standards do not comport with FEMA regulations, you must follow the 

procurement standards outlined in 44 CFR Part 13.36, Procurement. 

You should take the necessary steps to ensure there are opportunities 

to award contracts to minority, women-owned, and Labor Surplus 

Area businesses and firms whenever possible. Examples of affirmative 

steps include, but are not limited to: ensuring that the group of 

contractors considered for awards reflects appropriate demographics, 

placing qualified minority and women-owned businesses on 

solicitation lists, soliciting these businesses when possible, and 

requiring prime contractors to take these steps as well. 

FEMA will review, on an ongoing basis, procurement documents to 

validate that affirmative steps to utilize minority and women-owned 

businesses are being followed during the administration of an award. 

Individuals, organizations, and vendors can challenge contract awards 

through formal protest, complaints of discrimination in awarding 

the contract, allegations of real or apparent conflict of interest, or 

failure to follow established procedure for making an award. It is 

your responsibility to have protest procedures to handle and resolve 

disputes relating to your procurements and to provide information 

regarding protests to FEMA. 

Procurement policies must include procedures to handle protests 

and disputes related to contracts awarded. You will be responsible 

for settling contractual and administrative issues involving your 

procurements, including protests, disputes, and claims. FEMA will 

not review any procurement protests or disputes unless the matter 

is a possible violation of Federal law or a violation of State, Tribal, 
Chapter 7: Project Worksheets and Cost Estimating 45

and local laws protest procedures. Violations of State and local law 

will be referred to the appropriate jurisdiction. However, allegations 

of discrimination in the procurement and award of contracts will be 

referred to FEMA’s Office of Equal Rights for processing.

If you fail to comply with the conditions of the award, including the 

provisions for procuring goods or services (in compliance with 44 

CFR §§ 13.36, Procurement, and 13.37, Subgrants), FEMA may take 

enforcement actions outlined in 44 CFR § 13.43, Enforcement. These 

enforcement actions include, but are not limited to: temporarily 

withholding payment, disallowing all or part of a cost, wholly or partly 

suspending or terminating an award, or withholding future awards.

FEMA provides reimbursement for three types of contracts:

9 Lump sum – For work within a prescribed boundary with a 

clearly defined scope and a total price.

9 Unit price – For work done on an item-by-item basis with prices 

broken out per unit.

9 Cost plus fixed fee – Either a lump sum or unit price contract 

with a fixed contractor fee added into the price.

Time and materials contracts should be avoided except when the 

work is necessary immediately and a clear scope of work cannot 

be developed quickly enough. Generally, time and materials 

contracts should be limited to no more than 70 hours. Time and 

materials contracts are acceptable for power restoration work. If 

time and materials contracts are used, you need to award the work 

competitively, monitor the work closely, and document contractor 

expenses carefully. A cost ceiling or “not-to-exceed” provision 

should also be included in the contract. For example, time and 

materials contracts for debris should be limited to a maximum of 

70 hours of actual debris clearance work and should be used only 

after all available local, Tribal, and State government equipment 

has been committed. These contracts should be terminated once 

the designated dollar ceiling or not-to-exceed number of hours is 

reached. The contracts may be extended for a short period of time 

when absolutely necessary, for example, until unit price contracts have 

been prepared and executed.

Cost plus a percentage of cost and “piggyback” (expanding a 

previously awarded contract) contracts are not eligible. If you do 

not comply with the Federal procurement standards, FEMA may 

separately evaluate and reimburse only those costs it finds fair and 

reasonable
46 Chapter 7: Project Worksheets and Cost Estimating

Using Your Cost Data in the Subgrant Application (Project Worksheet). 

For small projects (at least $1,000 and less than $63,200 in fiscal year 

2010), you will estimate costs using the cost data developed through 

the methods outlined above. 

The method for estimating for large projects (equal to or more than 

$63,200 in fiscal year 2010) depends on the stage of completion when 

the Project Worksheet is prepared. If the project is more than 90 percent 

complete, use actual data for the completed work and estimate the 

remaining work using the methods outlined above. If the project is 

90 percent or less complete, cost estimating will be a team effort with 

FEMA. Because final funding for large projects is based on actual 

costs to complete the eligible scope of work, your funding for each 

large project will be adjusted after all work is complete.

FEMA cost estimators and construction engineers use a cost 

estimating methodology called the Cost Estimated Format (CEF) 

to estimate your total costs for each project. The CEF is a forward 

pricing model based on construction industry standards that accounts 

for all possible costs associated with your project. The CEF provides 

better up-front estimates, allows you to budget project costs with 

greater confidence, and provides information that will help you 

manage your projects. 

The CEF requires a clear definition of the scope of work eligible for 

public assistance. Once this scope of work has been developed, the 

CEF is applied in parts. Part A represents the base cost of completing 

the project. It includes the labor, materials, and equipment necessary 

to complete each item of the scope of work. Parts B through H 

contain job-specific factors that are usually added to the base cost 

determined in Part A. 

Part B includes construction costs not typically itemized in Part A, 

such as the general contractor’s supervision costs.

Part C includes construction cost contingencies and addresses 

budgetary risks associated with project complexity during the design 

process.

Part D accounts for the contractor’s overhead, insurance, bonds, and 

profit.

Part E accounts for cost escalation over the life of the project.

Part F includes fees for special reviews, plan checks, and permits.
Chapter 7: Project Worksheets and Cost Estimating 47

Part G is reserved for change orders, hidden damages, and differing 

site conditions discovered after construction starts.

Part H accounts for your cost to manage the design and construction 

of the project.

What do I need to do to help develop the Subgrant 

Applications (Project Worksheets)?

9 You have 60 days following the first substantive meeting with 

FEMA (usually the Kickoff Meeting) to identify and report 

damaged facilities to FEMA.

9 FEMA will work with you on describing your damages and scope 

of work, especially on large projects. But you need to ensure that 

all of your damages are identified and that your damages and 

scopes of work are well described. The costs are estimated based 

on this information. It is in your interest for the cost estimate to 

be as inclusive as possible. 

9 Make sure Special Considerations (i.e., insurance, hazard 

mitigation, historic preservation issues, and environmental 

compliance, including floodplain management) are identified.

9 Contact your State to ensure you are using proper contracting 

guidelines.

9 Ensure any procurement complies with Federal, State, and local 

requirements. 

9 Ensure your repairs are in accordance with the provisions of 

your final approved Subgrant Application (Project Worksheet).

9 Monitor and document work, whether done by your own force 

account or contractors. If changes in the Subgrant Applications 

(Project Worksheet) are needed, request approvals right away.

9 Ensure your cost records are organized and complete and 

include all required documentation.

9 Working with the State and FEMA may be necessary to 

research and evaluate requirements for facilities with historic 

or environmental issues. If applicable, keep a record of the 

information pertaining to the alternatives that are considered. 
48 Chapter 7: Project Worksheets and Cost Estimating

Forms

FEMA Form 90-91 Project Worksheet (Subgrant Application)

FEMA Form 90-91A Project Worksheet - Damage Description and Scope of Work 

Continuation Sheet (Subgrant Application)

FEMA Form 90-120 Special Consideration Questions

(Forms are available at www.fema.gov/government/grant/pa/forms.shtm.)

Versions/Amendments/Change Orders

Original Subgrant Applications (Project Worksheets) are written when 

damages are identified. FEMA may generate subsequent versions/

amendments/change orders for large projects to modify a scope of 

work, add damaged elements, grant time extensions, or modify the cost. 

Subsequent versions/amendments/change orders for small projects are 

rare and are generated only if the scope of work of the small project has 

changed very substantially, for example, due to a gross error or omission in 

the scope of work.
Chapter 8: Project Changes and Appeals 49

CHAPTER 8

Dealing With Changes 

to the Project and 

Appealing Decisions

Time

Eligible work must be completed within timeframes established by 

regulation. These timelines begin on the declaration date of the major 

disaster or emergency. The timelines correspond to type of work:

Debris Clearance 6 months

Emergency Protective Measures 6 months

Permanent Work 18 months

If you can justify a need for additional time due to extenuating 

circumstances or unusual project requirements, your State may grant a 

time extension for your work as long as there is no change in the scope of 

work or increase in cost. For debris removal (Category A) and emergency 

protective measures (Category B), the State may grant up to an additional 

6 months (for a total of 12 months) for the completion of the scope of 

work. For permanent work (Categories C–G), the State may grant up 

to an additional 30 months (for a total of 48 months). If your detailed 

justification merits even more time, the FEMA Regional Administrator can 

approve it. (Categories A–G are discussed in CHAPTER 3.)

Because FEMA provides assistance only for those costs incurred up to the 

latest approved completion date for a particular project, completing your 

work within an approved timeline is important. 

If you do not complete the approved scope of work, FEMA must rescind 

your funding for the project. 

Cost and Scope

During the course of the approved work, you may find that work or costs 

are exceeding the approved project description and estimates. If you need 

to change the scope or cost of work on the Subgrant Application (Project 
50 Chapter 8: Project Changes and Appeals

Worksheet), you must justify and request that change from the State. If the 

State agrees that the requested change is justified, the State will ask FEMA 

to approve the change. Any change in your project that affects the scope or 

cost of work can only be approved by FEMA. 

Project changes are generally not approved on the basis of a cost overrun 

on an individual small project unless the overrun is very substantial, for 

example, due to a gross error or omission in the scope of work. 

If you have a significant net overrun for all your small projects, you may 

appeal for additional funding. However, you should be prepared for a 

complete audit of all your small projects in response to such a request.

Potential deviations from the cost and scope of work described in the 

Subgrant Application (Project Worksheet) must be reported as soon as you are 

aware of them.

Undiscovered and Newly Discovered Damage

Assistance for any newly discovered damaged facilities must be requested 

within 60 days of the first substantive meeting (typically the Kickoff 

Meeting) with FEMA.

If you discover additional damage in a facility for which the damage 

description and scope of work have already been identified, report it 

immediately to the State. Don’t assume that you can obtain additional 

funding at the end of the project. The State and your FEMA PAC Crew 

Leader will want to see the damaged element before it is repaired. FEMA 

will determine whether to approve or deny your request for additional 

funding. 

Appeals

The appeals process allows you to request reconsideration of decisions 

regarding the provision of assistance. There are two levels of appeal, 

both of which are processed through your State to FEMA. The first level 

appeal is to the FEMA Regional Administrator. The second level appeal is 

to FEMA Headquarters. You must file an appeal with the State within 60 

days of receipt of a notice of the action that is being appealed, and you 

must provide justification to support the appeal. The supporting material 

should include any relevant documents, for example, correspondence, 

contracts, bids, and insurance policies. Explain why you believe the original 

determination is wrong and the amount of adjustment being requested.
Chapter 8: Project Changes and Appeals 51

What do I need to do?

9 Immediately advise your State PA Representative if you 

anticipate that your projects are falling behind schedule or 

becoming inconsistent in any way with the scope of work or costs 

described in your Subgrant Application (Project Worksheet).

9 Promptly appeal any FEMA decision with which you disagree 

through your State PA Representative.

Chapter 9: Documentation 53

CHAPTER 9

Documentation

You are responsible for establishing and maintaining accurate records of 

events and expenditures related to disaster recovery work for which you 

request FEMA assistance. The documentation required describes the “who, 

what, when, where, why, and how much” for each item of cost. 

These records become the basis for recovering your final project costs, 

and, for small projects, will be used to sample and validate your estimated 

project costs. Most States require you to submit documentation on costs 

before they will disburse any funds to you for your large projects. Proper 

documentation will help you justify cost overruns or time extensions. You 

also need cost information to develop your projects, show alternatives 

considered when an environmental or historic assessment was required, 

show that there has been no duplication of benefits, and prepare for audits 

or other program reviews. Incomplete or improper records can lead to 

either partial or total loss of assistance.

There are many ways to maintain your records. FEMA provides some 

forms that will help you. However, you may use your own records systems 

to replace the FEMA forms and to record other information. What is 

important is that you have the necessary information tied to each specific 

project readily available and in a usable format. 

Because work may be done before a Subgrant Application (Project Worksheet) 

is written, you should immediately establish a file for each site where you 

identify damage. This may involve opening a file for each building, vehicle, 

location (e.g., of road washout damage), and type of work (e.g., police 

response).

Depending on the type of damage, you may need to keep:

 Records that demonstrate the presence of an immediate threat 

 Drawings, sketches, and plans of pre-disaster facility design (to scale)

 Drawings and sketches of disaster-related damages (to scale)

 Drawings and sketches of completed or proposed repair (to scale) 

 Calculation sheets detailing specific dimensions and quantities of 

damage
54 Chapter 9: Documentation

 Force account labor records (i.e., payroll information, timesheets, and 

administrative policies) 

 Temporary hire labor records (i.e., work for which the labor was 

needed, payroll information, and timesheets)

 Fringe benefit calculations 

 Force account equipment usage information and rate schedules 

 Records of materials from inventory

 Rental and lease agreements

 Photographs of site, overall facility, specific damage, and repairs

 Subgrant Applications (Project Worksheets)

 Site location maps 

 Flood Insurance Rate Maps

 Facility maintenance records (e.g., for roads or debris basins)

 Facility inspection/safety reports (as may be available for bridges and 

dams)

 Engineering/technical reports and specifications for repair

 Codes and standards governing repairs/replacements

 Insurance information (i.e., policies, proof of loss statements from 

insurance company, deductible information, etc.)

 Documents supporting compliance with environmental and historical 

preservation issues

 Hazard mitigation proposals (as allowed under Section 406 of the 

Stafford Act)

 Justification for requests for a relocation, improved, or alternate 

project

 Records of donated labor, materials, and equipment, including 

location, description of work, name of worker, hours worked, value 

per hour, and certification 

 Contracts or contractor bids (including invoices and copies of 

payments)
Chapter 9: Documentation 55

 Inspection logs for work included in Subgrant Applications (Project 

Worksheets)

 Permits

 Correspondence

 Invoices/warrants/checks

 Job orders

 Mutual aid agreements and records of mutual aid requests and 

receipt

What do I need to do?

9 Maintain accurate disbursement and accounting records to 

document the work performed and the costs incurred. You are 

responsible for substantiating all costs and your records must be 

complete and organized. 

9 Designate a person to coordinate the accumulation of records. 

Some applicants also use the services of an internal auditor.

9 Establish a file for each project where work has been or will be 

performed. For projects that include more than one physical 

site, maintain records showing specific costs and scopes of work 

by site.

9 File all of the documentation pertaining to a project with the 

corresponding Subgrant Application (Project Worksheet) and 

maintain the files as the permanent record of the project. 

Ensure your documentation can be retrieved by the project 

number assigned on your Subgrant Application (Project 

Worksheet).

9 Examine the FEMA forms to see if they will be of use to you in 

recording your information.
56 Chapter 9: Documentation

9 Keep all financial and program documentation for three 

years beyond the date of the State’s Final Status Report 

(FSR), or longer if required by the State’s record retention 

policies. If an FSR is not required (find out from your State PA 

Representative), records must be maintained for three years 

from the date of the final certification of completion of your last 

project or as required by the State. Records are subject to audit 

by State auditors, FEMA, and the U.S. Department of Homeland 

Security’s Office of Inspector General.

FORMS

FEMA Form 90-123 Force Account Labor Summary Record

FEMA Form 90-127 Force Account Equipment Summary Record

FEMA Form 90-124 Materials Summary Record

FEMA Form 90-125 Rented Equipment Summary Record

FEMA Form 90-126 Contract Work Summary Record

FEMA Form 90-128 Applicant’s Benefits Calculation Worksheet

(Forms are available at www.fema.gov/government/grant/pa/forms.shtm.)
Chapter 10: Progress Reports, Closeout, and Audit 57

CHAPTER 10

Progress Reports, 

Closeout, and Audit

Progress Reports

FEMA expects you to actively manage your approved work, setting targets 

and making sure they are met. FEMA requires the State to report on 

your projects. Therefore, the State will require from you progress reports 

on each of your projects. Progress reports are a critical part of disaster 

management. They ensure that FEMA and the State have up-to-date 

information on the work and expenditures. Reporting requirements 

generally focus on large projects and include information such as: status 

of each project, projected completion dates, amount of expenditures for 

each project, and any circumstances that could delay the project or result in 

noncompliance with the conditions of the FEMA approval. Your State will 

inform you of the reporting requirements for the disaster.

Closeout

The purpose of closeout is to certify that all work has been completed and 

all of your eligible costs have been reimbursed. It is an important last step 

in the process.

Upon completion of a large project, you must submit documentation to the 

State to account for all incurred costs. The State is responsible for ensuring 

that all incurred costs are associated with the approved scope of work and 

for certifying that work has been completed in accordance with FEMA 

standards and policies. The State then submits documentation of project 

costs to FEMA for review. FEMA may conduct a final inspection of the 

site as part of this review. Once the review is complete, FEMA determines 

whether additional funds should be obligated or whether funds should be 

de-obligated for the project.

Once your small projects are complete, the State must certify that all work 

has been completed in accordance with the approved scope of work and in 

compliance with FEMA standards and policies, and that all payments have 

been made. This certification does not specify the amount spent on the 

projects, only that the projects were completed. Should you fail to complete 
58 Chapter 10: Progress Reports, Closeout, and Audit

any small project, including any mitigation work, funds approved for the 

project will be de-obligated. If you spend less than the amount approved 

by FEMA, no adjustment is made. However, if you incur costs significantly 

greater than the total amount approved for all your small projects, you 

may appeal for additional funding. Remember, this opportunity applies 

only to a significant net cost overrun for all small projects combined, not 

to an overrun for an individual small project. You should be prepared for 

a complete audit of all your small projects if you appeal for additional 

funding.

Closeout procedures are different for each State; however, you should 

notify the State PA Representative immediately as you complete each large 

project and when all of your small projects have been completed. You do 

not need to await the completion of your large projects to proceed with 

closeout of your small projects.

Audits

All documents are subject to audit by the State, FEMA, and the U.S. 

Department of Homeland Security Office of Inspector General. Because 

failure to properly document any claimed expenses may result in loss 

of funding, working within your approved scope of work and costs and 

documenting each project thoroughly are critical. 

What do I need to do?

9 Keep an eye on the calendar. From the date of the Presidential 

declaration, you have 6 months to complete emergency work 

and 18 months to complete permanent work. You should 

complete your work within those periods, but you may obtain 

extensions from the State based on extenuating circumstances 

or unusual project requirements beyond your control. You must 

complete your project within an approved timeline or risk loss 

of funds.

9 Notify the State immediately as you complete each large project. 

Large projects are closed out individually as each is completed. 

Costs must be reconciled (difference between estimated and 

actual costs for eligible work) as each large project is completed. 

You must account for all incurred costs. If you have a cost 

overrun, the quality of your documentation and justification will 

be critical to obtaining additional funds. 

9 Notify the State immediately when you have completed your last 

small project. Small projects are closed out as a group.
Chapter 10: Progress Reports, Closeout, and Audit 59

9 Certify to the State that all funds were expended and the project 

scope of work is complete.

9 You are responsible for documenting all costs associated with 

your projects. Make sure all documentation for a project is 

accurate, complete, and up to date for closeout review. Failure 

to properly document a project may result in loss of funding for 

any claimed work.

9 Maintain program and financial records for three years beyond 

the date of the State’s final FSR for the grant or longer if 

required by the State’s record retention policy. If an FSR is not 

required, records must be maintained for three years from the 

date of the final certification of completion of your last project. 

Check with your State for the record retention requirements 

that pertain to you.

Chapter 11: Conclusion 61

CHAPTER 11

Conclusion

Sources of Information

This Handbook was written to give you basic information to obtain 

assistance under the Stafford Act. Your State PA Representative and FEMA 

PAC Crew Leader and their staff will help you with your recovery. Further 

information about the Public Assistance Program is available on the FEMA 

Web site www.fema.gov/government/grant/pa/index.shtm. In addition 

to an electronic version of this Handbook, the Public Assistance Guide

(FEMA 322), which includes the Stafford Act and relevant portions of Title 

44 of the Code of Federal Regulations, the Public Assistance Policy Digest

(FEMA 321), the Public Assistance Debris Management Guide (FEMA 325), 

specific FEMA disaster Assistance policies and fact sheets, CEF tools, and 

other forms and tools that will help you understand the benefits to which 

you are entitled are available on the site. 

Apply for Assistance

The FEMA Public Assistance Program can help you if:

 You are an eligible applicant.

 You are legally responsible for an eligible service or for an eligible 

facility damaged in the declared event.

 The work and reasonable costs meet FEMA requirements.

Keep Good Records

 Establish, organize, maintain, and retain documentation.

Your Checklist of Milestone Events

 Conduct a local assessment and report damages to the State.

 Participate in Preliminary Damage Assessment, if you have an 

opportunity. 

 Watch for declaration of emergency by the Governor.
62 Chapter 11: Conclusion

 Watch for declaration of a major disaster or emergency by the 

President.

 Designate a representative to interact with the State and FEMA.

 Attend the Applicants’ Briefing scheduled by the State.

 Submit your Pre-application (Request for Public Assistance) form to the 

State.

 Attend the Kickoff Meeting scheduled for you, the State, and FEMA.

 If needed, request Immediate Needs Funding or Expedited Payments.

 Identify damages within 60 days of your Kickoff Meeting.

 If you prepare them yourself, submit Subgrant Applications (Project 

Worksheets) for small projects within 60 days of your Kickoff Meeting. 

 Complete Subgrant Applications (Project Worksheets) with the FEMA 

Project Specialist and Technical Specialists, if appropriate, to identify 

scope of work, costs, and Special Considerations (i.e., insurance, 

hazard mitigation, historic preservation, and environmental 

compliance including floodplain management) pertaining to your 

damages and recovery plans.

 Be aware of the timelines for accomplishing work. From the date of 

Presidential declaration:

9 6 months for debris removal and emergency protective measures 

9 18 months for permanent work 

9 If there is no change in scope of work or increase in costs, the 

State may approve extensions for up to 12 months for debris 

removal and emergency protective measures and up to 48 

months for permanent work. Other extensions require FEMA 

approval.

 Be mindful that temporary relocations of essential facilities are 

limited to 6 months and that extensions require justification.

 Manage the accomplishment of work and costs.

 Participate in site inspections by the State and FEMA.
Chapter 11: Conclusion 63

 Cooperate with progress reporting as required by the State.

 File appeals if you disagree with an action or decision:

9 Within 60 days of receipt of notice of the action or decision 

being appealed

9 For net small project overruns, within 60 days of the completion 

of all small projects

 Close out small projects when all are completed.

 Close out large projects as each project is completed.

 Cooperate with audits of your program and financial records by the 

State, FEMA, and the U.S. Department of Homeland Security Office 

of Inspector General at any time during the process.

Appendix A: Private Nonprofit (PNP) Organizations A-1

APPENDIX A

Private Nonprofit 

(PNP) Organizations

PNP organizations that own or operate facilities that provide certain 

services of a governmental nature are eligible for assistance. However, the 

organizations, facilities, and services must meet some additional eligibility 

criteria beyond those that apply to governmental applicants. 

Qualifying PNP Facilities

Qualifying PNP facilities are:

 Educational – These are primary, secondary, and higher education 

facilities, including vocational facilities. Unless used primarily for 

religious purposes, eligibility extends to buildings, housing, and 

classrooms, plus related supplies, equipment, machinery, and utilities 

necessary for instructional, administrative, and support purposes.

 Utility – This includes buildings, structures, and systems, even if 

not contiguous, of energy, communication, water supply, sewage 

collection and treatment, or other similar public service facilities. 

 Emergency – These include buildings, structures, equipment, or 

systems used to provide emergency services, such as fire protection, 

ambulances, and rescue, even if the facilities are not contiguous.

 Medical – These include hospitals, clinics, outpatient services, 

hospices, nursing homes, and rehabilitation centers that provide 

medical care. Eligible components include the administrative and 

support facilities essential to the operation of the facility, even if not 

contiguous.

 Custodial care, including facilities for the aged and disabled – These 

include those buildings, structures, or systems, including those 

essential for administration and support, that are used to provide 

institutional care for persons who do not require day-to-day medical 

care, but do require close supervision and some physical constraints 

on their daily activities for their protection. 
A-2 Appendix A: Private Nonprofit (PNP) Organizations

 Certain irrigation facilities – These include irrigation facilities 

that provide water for essential services of a governmental nature. 

Eligible irrigation facilities include those that provide water for fire 

suppression, generating electricity, and drinking supply. Facilities 

that provide water for agricultural purposes are not eligible. For an 

irrigation facility element with mixed purposes, only damages related 

to the eligible purpose are eligible.

 Facilities on Indian reservations.

 Other essential governmental services, including:

9 Museums

9 Zoos

9 Performing arts facilities

9 Community arts centers

9 Community centers

9 Libraries

9 Homeless shelters

9 Senior citizen centers

9 Rehabilitation facilities

9 Shelter workshops

9 Health and safety services of a governmental nature, such as low 

income housing, alcohol and drug treatment centers, facilities 

offering programs for battered spouses, facilities offering food 

programs for the needy, and daycare centers for children and 

those with special needs

If you operate such a facility or service, you may be eligible if you also have:

 An effective ruling letter from the U.S. Internal Revenue Service 

granting tax exemption under Section 501(c), (d), or (e) of the 

Internal Revenue Code of 1954, as amended, or

 State certification that your organization is a non-revenue producing 

nonprofit entity organized or doing business under State law.
Appendix A: Private Nonprofit (PNP) Organizations A-3

Facilities must to be open to the general public. However, PNPs on Indian 

reservations and some educational, utility, emergency, medical, and 

custodial care services are exempt from this requirement. 

Qualifying Work

For eligible PNPs performing eligible functions, debris removal from the 

facility’s property, emergency protective measures to prevent damage to 

an eligible facility and its contents, and repair or replacement of eligible 

damaged facilities are eligible for assistance. The potentially eligible facility 

is the one from which the qualifying service is delivered. 

 All eligible PNPs seeking reimbursement from FEMA for debris 

removal and emergency protective measures should apply directly to 

FEMA for assistance.

 Eligible PNPs seeking assistance with permanent repairs and 

restoration apply for disaster assistance according to the following 

requirements, depending on whether the facility provides critical or 

non-critical services.

PNP organizations that supply critical services should apply directly 

to FEMA for cost-shared assistance. Facilities with a mix of critical 

and non-critical services should also apply directly to FEMA. Critical 

services are defined as:

9 Power – Generation, transmission, and electrical power 

distribution facilities

9 Water – Treatment, transmission, and distribution facilities 

for a water company supplying municipal water (also, water 

provided by an irrigation company for potable, fire protection 

or electricity generation purposes) 

9 Sewer and wastewater – wastewater collection, transmission, and 

treatment facilities 

9 Communications – Telecommunications transmission, switching, 

and distribution facilities 

9 Education – Primary, secondary, and higher education facilities 

(including vocational facilities) 

9 Emergency medical care – Hospitals, clinics, outpatient services, 

hospices, nursing homes, and rehabilitation centers that provide 

medical care 
A-4 Appendix A: Private Nonprofit (PNP) Organizations

9 Fire protection/emergency services – Fire and rescue 

companies, including buildings and vehicles essential to 

providing emergency services and ambulance companies 

Non-critical services are those that do not qualify as critical service 

facilities. PNPs with non-critical services should apply to FEMA first, 

but also must apply to the Small Business Administration (SBA) for a 

low-interest loan for repair of disaster damages.

 Facilities that support PNP facilities providing critical services (e.g., 

administration buildings and parking garages) are not eligible for the 

critical designation. 

 Facilities that provide critical services should apply directly to FEMA 

for cost-shared assistance. Facilities with a mix of critical and noncritical services should also apply directly to FEMA. 

Small Business Administration

Eligible PNP facilities that do not provide critical services must apply for 

a loan from the SBA for permanent work. If declined for a loan, the PNP 

may be eligible for FEMA assistance. Also, if the loan does not cover all 

eligible damages, FEMA may be able to provide cost-shared assistance for 

the difference. FEMA cannot take action on your request for funding for 

permanent work while your loan request is pending with the SBA, but you 

still should identify your damages to FEMA immediately so that Subgrant 

Applications (Project Worksheets) can be prepared to record damages, and 

to begin the process for funding your emergency work (which does not 

require an SBA loan application). Having the Subgrant Application (Project 

Worksheet) for your permanent work on file will allow FEMA to expedite 

your assistance once the SBA renders its decision on your loan request. 

Some Things You Need to Know

Facilities with a mix of eligible and ineligible activities (e.g., a clinic that has 

a commercial pharmacy in the building) are eligible if over 50 percent of 

the space or time is used for eligible activities. Benefits will be pro-rated. If 

less than 50 percent of the space or time is used for eligible activities, the 

facility is not eligible at all. 

Operating costs for providing services are not eligible, even if they are 

increased by the event. Labor, material, and equipment costs for providing 

assistance to disaster victims are also ineligible, even if the services are 

outside the organization’s basic mission. If you provide services under 

contract to a State agency or local government agency, the costs may be 
Appendix A: Private Nonprofit (PNP) Organizations A-5

eligible if they are claimed by the agency or government. Some reasonable 

short-term additional costs that are directly related to accomplishing 

specific approved emergency health and safety tasks as part of eligible 

emergency protective measures may be eligible if they can be documented 

and connected to a specific emergency task (e.g., increased utility costs for 

a permanently mounted generator at a hospital). 

Homeowners’ associations and gated communities are not eligible for 

Public Assistance funding, except when:

 Removal of debris from roadways within the community is required 

to create an emergency path of travel. The work is performed or 

contracted by an eligible local or State-level government entity with 

legal authority and reimbursement is requested by the eligible local or 

State entity.

 The association meets the criteria for an eligible PNP that provides 

eligible critical services (i.e., educational, medical, custodial care, 

emergency, and utility [but not irrigation] facilities/services).

Community Development Districts (CDD) are special districts authorized 

under State law to finance, plan, establish, acquire, construct/reconstruct, 

extend/enlarge, equip, operate, and maintain systems, facilities, and basic 

infrastructure within their respective jurisdictions. To be eligible, the CDD 

must be established under State law, have legal responsibility for ownership, 

maintenance, and operation of an eligible facility, and be open to the 

general public. If access is restricted, a CDD is only eligible when:

 Debris removal from roadways is required to create an emergency 

path of travel, the work is performed or contracted by an eligible 

local or State-level government entity with legal authority, and 

reimbursement is requested by the eligible local or State entity. If the 

CDD was established for the purpose of road maintenance, the CDD 

may do the work and apply as an applicant.

 Emergency protective measures required for repair of facilities for 

which the CDD was created. If it was created for water and sewer 

operations, the CDD may claim assistance for only those facilities. 

Other facilities of the CDD would be ineligible for both emergency 

and permanent work.
A-6 Appendix A: Private Nonprofit (PNP) Organizations

Some of the PNP facilities that are not eligible for FEMA assistance include:

 Recreational facilities

 Job counseling or job training facilities

 Conference facilities

 Facilities for advocacy groups not directly providing health services

 Facilities for advocacy or lobbying

 Irrigation for agricultural purposes

 Roads owned and operated by a homeowners’ association

 Parking facilities not directly supporting an eligible facility

 Facilities for religious service or education

What do I need to do?

9 Identify damages.

9 Establish your status as an eligible PNP organization.

9 Apply for FEMA assistance.

9 Apply for an SBA loan, if your work is a permanent repair for a 

non-critical service.
Appendix B: Insurance B-1

APPENDIX B

Insurance

Insurance is an important consideration of the Public Assistance Program 

and comes into play in two respects.

 FEMA cannot provide disaster assistance (for either emergency work 

or permanent work) if damages or losses are covered by insurance. 

Consequently, you need to file your claims with your carrier as soon as 

possible after the disaster.

 FEMA requires you to obtain and maintain insurance on facilities 

repaired/replaced with FEMA funding.

Insurance Reductions

Duplication of Benefits. FEMA must reduce all project grants for insured 

property by the amount of actual insurance proceeds received or by the 

amount of proceeds that can be reasonably anticipated from a review of the 

insurance policy. By taking this reduction, FEMA eliminates the potential 

for duplication of benefits for the same loss. This applies to both general 

property insurance and flood insurance. Insurance often covers buildings, 

contents of buildings, vehicles, equipment, debris removal, demolition, 

cleanup, snow removal, temporary facilities, code and standard upgrades, 

operating costs, and other losses. Reductions apply to both emergency work 

and permanent work under the Public Assistance Program.

For general property insurance (a term FEMA uses to describe all perils 

except for flood), FEMA will apply a reduction based on the statement of 

loss, if received, to reduce the eligible amount of funding by the amount 

of the actual insurance proceeds. However, if the insurance proceeds are 

unknown or do not appear to agree with the policy coverage description, a 

FEMA Technical Specialist in the insurance field will review your insurance 

policy with your Subgrant Applications (Project Worksheets) to determine this 

amount. The anticipated proceeds are then deducted from the original 

eligible amount of disaster damage. 

For flood damages, the reduction of eligible costs is based on whether or 

not the damage is located within a Special Flood Hazard Area (SFHA) as 

defined by the NFIP. If the facility is outside the SFHA, the reduction is the 

actual or anticipated insurance proceeds. If the facility is within the SFHA 
B-2 Appendix B: Insurance

and has no or insufficient flood insurance, eligible costs will be reduced by 

the lesser of: 

 The value of the facility, or

 The maximum amount of insurance proceeds that would have been 

payable had the facility by covered through NFIP coverage.

It is the sole responsibility of the Public Assistance applicant to request 

a Letter of Map Amendment or a Letter of Map Revision if the applicant 

believes that a structure is not actually located in the identified SFHA as 

indicated on current Flood Insurance Rate Maps.

Past Damages. Project grants are also reduced if there was a requirement 

that insurance be obtained and maintained for the facility for the same 

peril.

Required Documentation

Documents. You must submit copies of all insurance documentation 

(including the insurance policy with all data, declarations, endorsements, 

exclusions, schedules and other attachments or amendments) to your 

FEMA PAC Crew Leader. Any settlement documentation (including copies 

of the claim, proof of loss, statement of loss, and any other documentation 

describing the covered items and insurance proceeds available for those 

items) must also be submitted. This documentation will be used to 

determine your level of project funding. Insurance reductions will be made 

prior to project approval and noted in the General Comments section of 

the Subgrant Application (Project Worksheet).

Apportionment. If your insurance policy covers both insured eligible and 

insured ineligible damages, such as both property and business income 

losses, without specifying limits for each type of loss, FEMA will apportion 

the anticipated recovery based on the ratio of insured eligible to insured 

ineligible damages.

Perils. The type of peril (e.g., flood, wind, fire, hail, etc.) that caused the 

disaster damage must be identified in the Subgrant Application (Project 

Worksheet). Insurance coverage often excludes certain perils and may 

only cover certain damaged items within a project. In addition, a single 

facility may have been damaged by multiple perils, such as wind and flood 

damage during a hurricane, and the insurance may only cover some of the 

perils. Damages from wind and flood must be separated on the Subgrant 

Application (Project Worksheet), as they are assessed very differently for 

insurance purposes.
Appendix B: Insurance B-3

Past Damages. Finally, you must report whether the facility has ever 

received disaster assistance from FEMA. If any required insurance coverage 

for the same peril was not obtained or maintained, FEMA may not provide 

assistance for the facility. 

Frequent Claims. Uninsured losses that might be eligible for FEMA 

assistance include:

 Reasonable deductible in your first claimed FEMA assistance if the 

cost is accrued to you

 Depreciation (that is, the differences between FEMA eligible costs and 

final loss valuations used by insurers)

 Costs in excess of insurance policy limits, including sub-limits for 

certain perils (such as flood or earthquake)

Obtaining and Maintaining Insurance

Requirement. As a condition of receiving Federal assistance, you must 

obtain and maintain insurance in at least the amount of the eligible 

damage to protect against future loss to such property from the same peril 

for the useful life of the repairs. The required insurance coverage must 

be obtained, or letter of commitment accepted by the State, prior to the 

release of any Federal funds. If the insurance is not maintained, the facility 

will receive no assistance in future events for the same peril. 

Insurance can be purchased for a variety of valuable properties. Generally, 

the following are insurable: buildings, contents of buildings, vehicles, and 

equipment. If any other specific type of insurance is reasonably available, 

adequate, and necessary to insure your facility, you may be required to 

obtain and maintain that insurance coverage. 

If assistance was received for flooding, you are required to obtain flood 

insurance even if you are located outside the floodplain.

Amount of Insurance. You must obtain insurance for the full amount of 

FEMA assistance (including Section 406 hazard mitigation assistance), even 

if the amount is over the NFIP limit. If the amount of assistance is over the 

NFIP limit, you will need to obtain commercial insurance. 

When Insurance Is Not Required. Insurance is not required if the estimate 

for the repair of disaster-related damage is less than $5,000. Insurance is 

also not required on temporary facilities.
B-4 Appendix B: Insurance

Premiums Are Your Costs. Premiums (for temporary as well as for other 

facilities) are not eligible for reimbursement. However, prudent risk 

management practices encourage appropriate coverage for peril exposure 

at a facility. If a FEMA-funded temporary facility is damaged in a nonPresidentially declared event, FEMA will not repair or replace it.

What do I need to do?

9 Contact your insurance carrier, file your claims, and pursue 

payments you are entitled to under your insurance policies.

9 Collect your insurance coverage and settlement documentation.

9 Discuss insurance coverage with your FEMA PAC Crew Leader 

or FEMA insurance Technical Specialist, and provide him/

her with insurance documents and statements of loss. If 

the damaged facility is rented, a copy of the lease or rental 

agreement may also be necessary.

9 Identify all past disaster damages and claims for Federal 

assistance, and discuss them with your FEMA PAC Crew Leader 

or FEMA insurance Technical Specialist.

9 Be sure your damages and scope of work are adequately 

described in the Subgrant Application (Project Worksheet), even if 

a portion will be covered by your insurance. This will allow for 

a future adjustment of eligible costs if there is a change in your 

insurance settlement.

9 Keep the FEMA PAC Crew Leader informed of any problems.

9 Follow FEMA procedures if you believe your facility was 

incorrectly included in an identified SFHA and be sure your 

Subgrant Application (Project Worksheet) notes the situation and 

steps you are taking to correct the elevation data.

9 Obtain and maintain insurance on FEMA funded damages as 

required. Obtain insurance coverage as soon as possible.
Appendix C: Hazard Mitigation C-1

APPENDIX C

Hazard Mitigation

What It Is

If your damaged facility is eligible for permanent repairs, you may also 

be eligible for additional cost-shared assistance under Section 406 of the 

Stafford Act for cost-effective measures that will prevent future similar 

damage to your facility. These measures are called hazard mitigation 

measures. FEMA strongly encourages you to consider hazard mitigation 

opportunities as a part of the repair and restoration of your facility. Hazard 

mitigation measures for your project may be proposed by you, FEMA, 

or the State. While your basic funding will return your facilities to their 

pre-disaster design, hazard mitigation measures will improve on the predisaster design. (Upgrades required to meet applicable codes and standards 

are part of your basic eligible restoration work, not hazard mitigation 

measures.) 

Hazard mitigation opportunities usually present themselves at sites where 

damages are repetitive and simple measures will solve the problem. A 

hazard mitigation proposal is a written description and cost estimate of 

what it will take to repair the damage in such a way as to prevent it from 

happening again. The proposal is submitted with the Subgrant Application 

(Project Worksheet) and describes in detail the additional work and cost 

associated with the mitigation measure. Hazard mitigation measures must 

meet one of the following tests of cost-effectiveness:

 Cost no more than 15 percent of the total eligible cost of eligible 

repair work for the damaged facility

 Cost no more that 100 percent of the total eligible cost of eligible 

repair work and on the list of FEMA-approved mitigation measures

 Have a benefit-cost ratio of equal to or greater than 1.0

Because mitigation measures can be technically complex and must be 

thoroughly evaluated for feasibility, you may want to ask your FEMA PAC 

Crew Leader for technical assistance in identifying hazard mitigation 

measures or in preparing a proposal. The FEMA PAC Crew Leader may 

request additional help from a Technical Specialist who can identify 
C-2 Appendix C: Hazard Mitigation

hazard mitigation opportunities and analyze hazard mitigation proposals 

for cost-effectiveness and feasibility. Since hazard mitigation will often 

change the pre-disaster design of the facility and will require consideration 

of environmental and historic preservation issues, your FEMA PAC Crew 

Leader may also obtain assistance from Technical Specialists in those areas.

If approved (i.e., good engineering design, cost-effective, eligible, 

technically feasible, and compliant with environmental and historic 

preservation rules, etc.), the additional work will be addressed in a 

separate paragraph within the SCOPE OF WORK section of the Subgrant 

Application (Project Worksheet). If approved, the costs will be included in the 

overall funding of your project. 

Some Things You Need to Know

If your hazard mitigation proposal is approved by FEMA, you are required 

to complete the work while completing the repair documented on the 

Subgrant Application (Project Worksheet). 

The mitigation measure becomes part of the work on which you are 

required to obtain and maintain insurance.

No measure may increase risks or cause adverse effects to the facility or to 

other property. For example, if the mitigation dealt with drainage issues, an 

important concern would be the effect the mitigation measure would have 

downstream. 

Alternate projects, and improved projects if a replacement facility is 

involved, are not eligible for Section 406 (Stafford Act) hazard mitigation 

funding. Also mitigation funding that might have been approved for an 

original location does not transfer to a new location for an improved 

project that involves combining facilities. 

Undamaged elements of a facility or system are not eligible for hazard 

mitigation funding. Hazard mitigation measures apply only to the damaged 

elements of a facility or system. For example:

 If flooding inundates a sanitary sewer and blocks manholes with 

sediment, cost-effective mitigation to prevent the blockage of the 

damaged manholes in a future disaster may be considered. 

 If five columns (of a building with twenty columns) were damaged in 

an earthquake, reinforcing those five damaged columns might be a 

cost-effective hazard mitigation measure.
Appendix C: Hazard Mitigation C-3

 If wind blew out some of the windows in a building, providing shutters 

for those windows only (not all windows) could be a cost-effective 

mitigation measure. 

 If a wing of a building was damaged, mitigation measures would apply 

only to that wing, not the whole building. 

Undamaged facilities are not eligible for Section 406 hazard mitigation 

funding. However, they may be eligible for hazard mitigation funding 

under Section 404 (Stafford Act). Section 404 funding is managed by 

the State and does not fall under the jurisdiction of the Public Assistance 

Program. Measures under Section 404 do not have to be structural in 

nature. Questions regarding the Section 404 hazard mitigation program 

should be directed to your State Hazard Mitigation Officer.

What do I need to do to obtain Section 406 hazard mitigation funding?

9 If your project is eligible for permanent repair, look for, 

and request your project be evaluated for, hazard mitigation 

opportunities. 

9 Submit benefit-cost documentation for each mitigation 

proposal.

Appendix D: Historic Preservation D-1

APPENDIX D

Historic Preservation

When providing funding under the Stafford Act, FEMA is required to 

comply with applicable Federal historic preservation laws and regulations, 

including the National Historic Preservation Act (NHPA). 

Section 106 of the NHPA requires that FEMA consider the direct or 

indirect effects of projects it funds (referred to as undertakings) on historic 

properties. Historic properties include pre-historic and historic districts, 

sites, buildings, structures, and objects listed on, or eligible for inclusion 

on, the National Register of Historic Places (NRHP). Historic properties 

also include those of traditional religious and cultural importance to an 

Indian tribe that meet the National Register of Historic Places criteria. 

Facilities can generally be considered historic when they are 50 years of age 

or older. However, historic properties are not limited to buildings or wellknown historic sites. Facilities as diverse as bridges, roads, industrial plants, 

landscapes, and areas once inhabited by prehistoric populations may be 

considered historic properties. 

Many Public Assistance projects have the potential to affect historic 

properties. These projects include:

 Repair, restoration, mitigation, or demolition of historic buildings, 

structures, or objects

 Repair, restoration, mitigation, and demolition projects in pre-historic 

and historic districts

 Improved, alternate, mitigation, or relocation projects affecting 

undisturbed areas that may contain pre-historic or historic sites

FEMA must ensure the following steps are accomplished before approving 

funding:

 Determination of the Area of Potential Effects

 Identification of historic properties

 Evaluation of the effects of the proposed projects on historic 

properties
D-2 Appendix D: Historic Preservation

 Resolution of adverse effects on historic properties 

 Consultation with the State Historic Preservation Office (SHPO) or 

Tribal Historic Preservation Office (THPO) and other interested 

parties

In some cases, FEMA may establish a programmatic agreement with the 

Advisory Council on Historic Preservation (ACHP) and the SHPO or the 

THPO at the beginning of the disaster recovery process to address projects 

potentially falling within the scope of the NHPA and to expedite the 

Section 106 compliance process. In other cases, FEMA may have already 

established a programmatic agreement with the ACHP and SHPO or 

THPO that applies to current and future disasters. Your FEMA PAC Crew 

Leader and historic Technical Specialist will guide you through the historic 

preservation requirements.

What do I need to do?

 Help your FEMA PAC Crew Leader identify historic preservation 

issues related to your project. If you are preparing your own Subgrant 

Applications (Project Worksheets) for small projects, include historic 

preservation issues on your Subgrant Application (Project Worksheet). 

 Be prepared submit the following with your Subgrant Applications 

(Project Worksheets):

9 Site plans, drawings, or sketches

9 Design/construction plans or drawings

9 Record of contact with regulatory agencies and other interested 

parties (e.g., the local historic society)

9 Copies of existing permits and permit applications

9 Information on the age of the facility, especially whether a 

facility or area is on the NRHP

9 Dates of construction and modification of the facility 

9 Photographs of the damaged facility and surrounding area

9 Photographs of any historic markers or plaques

 Remember that failure to comply with historic preservation 

requirements will jeopardize FEMA funding for your project.
Appendix E: Environmental Compliance E-1

APPENDIX E

Environmental 

Compliance

When providing assistance under the Stafford Act, FEMA must comply with 

applicable Federal environmental laws and their implementing regulations 

and Executive Orders. The Federal environmental laws that most often 

relate to FEMA-funded projects include: the Clean Water Act, the Clean 

Air Act, the Coastal Barriers Resources Act, the Coastal Zone Management 

Act, the Resources Recovery and Conservation Act, the Endangered Species 

Act (ESA), and the National Environmental Policy Act (NEPA). The three 

Executive Orders most frequently encountered in FEMA projects address: 

floodplain management (Executive Order 11988), wetland protection 

(Executive Order 11990), and environmental justice (Executive Order 

12898). While all projects must comply with these laws and Executive 

Orders, the location and nature of the project determines whether or not 

a law is relevant. Some of these laws have exclusions or allow for expedited 

consultations for certain types of work. FEMA will apply these mechanisms 

to clearance for projects where appropriate. FEMA and the States also 

have established procedures to expedite compliance of those projects that 

do not fall under the exceptions. Early identification of factors that affect 

compliance is the key to expedited review and approval.

NEPA requires that Federal agencies include environmental planning 

in their decisionmaking process, as well as mission objective, cost, and 

technological issues. FEMA complies with this requirement by evaluating 

the potential environmental impacts of a proposed project. NEPA also 

requires Federal agencies to ensure appropriate public involvement. 

Over 75 percent of projects funded by the Public Assistance Program are 

either emergency activities or projects to repair facilities to their predisaster design. These types of actions are statutorily excluded from the 

NEPA review process. If the damaged facility is proposed to be upgraded 

or improved or if mitigation is being added, FEMA must conduct and 

document the NEPA review. Generally, FEMA must complete this 

NEPA review before the project is initiated, otherwise funding may be 

jeopardized. Regardless of the level of review required by NEPA, other 

relevant environmental laws and Executive Orders must be addressed.
E-2 Appendix E: Environmental Compliance

Special consideration should be given to compliance with the ESA 

(Section 7). Unlike NEPA, emergency actions are not exempt from 

ESA. FEMA must consult with either the U.S. Fish and Wildlife Service 

(USFWS) or the National Marine Fisheries Service (NMFS) to determine 

the potential to affect protected species and their habitats, even for 

emergency actions. However, there are provisions in the ESA for emergency 

consultation. If you are taking any action which has the potential to affect 

threatened or endangered species or their habitats, you must notify FEMA 

and the appropriate regulatory agency (USFWS or NMFS) prior to taking 

the emergency action. This notification can be in the form of a phone call, 

an email, or a fax. This notification is required. If USFWS or NMFS is not 

notified of the emergency action and it potentially affects protected species 

or their habitats, FEMA cannot fund the project. After the emergency, 

FEMA can conclude the consultation process with USFWS or NMFS.

A “Yes” response to any of the Special Consideration Questions from the 

FEMA PAC Crew Leader is an indication that a more detailed review 

for compliance with environmental requirements might be triggered. If 

your project is near or affects a stream, a wetland, or other body of water, 

requires the temporary or permanent destruction of an area of natural 

vegetation, or is in or near a special resource area, like a wildlife refuge, 

forest, or park, an environmental compliance review will likely be required. 

Your FEMA PAC Crew Leader will assign an environmental Technical 

Specialist to assist you.

What is my role?

9 While it generally is the FEMA PAC Crew Leader’s responsibility 

to complete the Special Consideration Questions form, he or she 

needs your help in identifying Special Considerations related 

to your project. The FEMA PAC Crew Leader will ask you a 

standard set of questions to help identify these issues. 

9 Be prepared to submit the following with your Subgrant 

Applications (Project Worksheets):

• Site plans, drawings or sketches

• Design/construction plans or drawings

• Hydraulic/hydrological study or analysis

• Location and site maps 

• Flood Insurance Rate Maps 
Appendix E: Environmental Compliance E-3

• Record of contact with regulatory agencies

• Copies of existing permits and permit applications

• Photographs of the damaged facility and surrounding area

9 If you are preparing your own Subgrant Applications (Project 

Worksheets), address Special Consideration issues on your 

Subgrant Applications (Project Worksheets), as appropriate. 

9 Submit projects with identified Special Consideration issues 

as soon as possible, as FEMA must complete the review for 

environmental compliance prior to initiation of the project 

work. 

9 Keep a copy of the Special Consideration Questions form with the 

other documentation on the project to show that regulatory 

issues were considered. 

9 Use a separate paragraph within the SCOPE OF WORK block 

on the Subgrant Application (Project Worksheet) to describe any 

proposed changes to the pre-disaster design of the facility and 

any proposed improved project, alternate project, relocation, 

hazard mitigation measure, or upgrade to applicable codes and 

standards. 

9 You are responsible for complying with all applicable 

environmental laws regardless of the funding source. Examples 

of other environmental laws include the Clean Water Act 

(Sections 401, 402, and 404), the Clean Air Act (New Source 

Review), state endangered species acts, and local noise 

ordinances. As a condition of funding, FEMA and the State will 

require that you obtain all applicable permits and document 

compliance with all applicable environmental laws. 

9 Sometimes local, State, or Federal regulations have permit 

exemptions. Contact the appropriate agencies about any 

exemptions and expedited permit processes that may be 

applicable. FEMA may withdraw funding for a project if you do 

not obtain the appropriate permits or comply with applicable 

environmental laws, regulations, and Executive Orders.

FORM

FEMA Form 90-120 Special Consideration Questions

(Forms are available at www.fema.gov/government/grant/pa/forms.shtm.)

Appendix F: FEMA Forms F-1

APPENDIX F

FEMA Forms

Sample copies of forms follow this page and are available on the FEMA Web 

site (www.fema.gov/government/grant/pa/forms.shtm).

An authorized representative of the applicant must sign each page of the 

forms to certify the accuracy of the information provided.

FEMA Form 90-49 Request for Public Assistance (Pre-application)

FEMA Form 90-61 Hazard Mitigation Proposal (HMP)

FEMA Form 90-91 Project Worksheet (Subgrant Application)

FEMA Form 90-91A Project Worksheet – Damage Description and Scope 

of Work Continuation Sheet

FEMA Form 90-91B Project Worksheet – Cost Estimate Continuation 

Sheet

FEMA Form 90-91C Project Worksheet – Maps and Sketches Sheet

FEMA Form 90-91D Project Worksheet – Photo Sheet

FEMA Form 90-118 Validation Worksheet

FEMA Form 90-119 Project Validation Form

FEMA Form 90-120 Special Consideration Questions

FEMA Form 90-121 Private Nonprofit (PNP) Facility Questionnaire

FEMA Form 90-122 Historic Review Assessment for Determination of 

Adverse Effect

FEMA Form 90-123 Force Account Labor Summary Record

FEMA Form 90-124 Materials Summary Record

FEMA Form 90-125 Rented Equipment Summary Record

FEMA Form 90-126 Contract Work Summary Record

FEMA Form 90-127 Force Account Equipment Summary Record

FEMA Form 90-128 Applicant’s Benefits Calculation Worksheet
F-2 Appendix F: FEMA Forms
Appendix F: FEMA Forms F-3
F-4 Appendix F: FEMA Forms
Appendix F: FEMA Forms F-5
F-6 Appendix F: FEMA Forms
Appendix F: FEMA Forms F-7
F-8 Appendix F: FEMA Forms
Appendix F: FEMA Forms F-9
F-10 Appendix F: FEMA Forms
Appendix F: FEMA Forms F-11
F-12 Appendix F: FEMA Forms
Appendix F: FEMA Forms F-13
F-14 Appendix F: FEMA Forms
Appendix F: FEMA Forms F-15
F-16 Appendix F: FEMA Forms
Appendix F: FEMA Forms F-17
F-18 Appendix F: FEMA Forms
Appendix F: FEMA Forms F-19
F-20 Appendix F: FEMA Forms
Appendix G: Glossary of Terms G-1

APPENDIX G

Glossary of Terms

Applicant

A State agency, local government, Indian Tribe, authorized tribal 

organization, Alaska Native village or organization and certain Private 

Nonprofit (PNP) organizations that submit a request for disaster 

assistance under the Presidentially declared major disaster or emergency. 

The terms “applicant” and subgrantee” are often used interchangeably.

Applicants’ Briefing

A meeting conducted by a representative of the State for potential Public 

Assistance applicants. The briefing occurs after an emergency or major 

disaster has been declared and addresses Public Assistance application 

procedures, administrative requirements, funding, and program 

eligibility criteria.

Applicant Liaison 

A State representative responsible for providing applicants with Statespecific information and documentation requirements. The Applicant 

Liaison works closely with the PAC Crew Leader to provide any technical 

assistance or guidance the applicant may require. The terms “Applicant 

Liaison” and “State Public Assistance (PA) Representative” are often 

used interchangeably.

Case Management

A system approach to provision of equitable and timely service to 

applicants for disaster assistance. Organized around the needs of the 

applicant, the system consists of a single point of coordination, a team of 

on-site specialists, and a centralized, automated filing system.

Case Management File (CMF)

A centralized data bank of all applicant activities. Data entered into this 

bank creates a chronological history of everything that has taken place 

with an applicant from the time they apply for assistance until they have 

received all monies and their file has been closed.
G-2 Appendix G: Glossary of Terms

Closeout

Grant closure occurs when FEMA determines that all applicable 

administrative actions related to the Public Assistance Program are 

complete and all programs funds are reconciled. At this stage, all Public 

Assistance Program projects have been completed, the State has awarded 

all grant funds and submitted its final expenditure report to FEMA, and 

FEMA has adjusted the funding level for the program as appropriate.

Contractor

Any individual, partnership, corporation, agency, or other entity (other 

than an organization engaged in the business of insurance) performing 

work by contract for the Federal Government or a State or local agency, 

or Tribal government.

Cost Estimating Format (CEF)

A forward-pricing methodology for estimating the total cost of repair 

for large permanent projects by use of construction industry standards. 

The format uses a base cost estimate and design and construction 

contingency factors, applied as a percentage of the base cost.

Declarations

There are two types of declarations (Emergency Declarations and Major 

Disaster Declarations). Both declaration types authorize the President to 

provide Federal disaster assistance. However, the cause of the declaration 

and the type and amount of assistance differ. 

Designated Area 

Any emergency- or major disaster-affected portion of a State that has 

been determined eligible to apply for Federal assistance.

Emergency

Any occasion or instance for which, in the determination of the 

President, Federal assistance is needed to supplement State and local 

efforts and capabilities to save lives and to protect property and public 

health and safety, or to lessen or avert the threat of a catastrophe in any 

part of the United States.

Emergency Work

That work which is performed to reduce or eliminate an immediate 

threat to life, to protect health and safety, and to protect improved 

property that is threatened in a significant way as a result of a major 

disaster. Emergency work frequently includes clearance and removal 

of debris and temporary restoration of essential public facilities and 

services (Categories A and B).
Appendix G: Glossary of Terms G-3

Executive Orders (EOs)

Legally binding orders given by the President to Federal Administrative 

Agencies. Executive Orders are generally used to direct Federal agencies 

and officials in their execution of congressionally established laws or 

policies. Executive Orders do not require congressional approval to take 

effect, but they have the same legal weight as laws passed by Congress.

Expedited Payments

An advance of grants to assist with payment of emergency work after 

a disaster event. The amount of funding is 50 percent of the Federal 

share of emergency costs as identified during the Preliminary Damage 

Assessment. Payment for Category A will be made within 60 days after 

the estimate was made and no later than 90 days after the Pre-application 

(Request for Public Assistance) was submitted.

Facility

Any publicly or Private Nonprofit (PNP)-owned building, works, 

system, or equipment (built or manufactured) or certain improved and 

maintained natural features. Land used for agricultural purposes is not a 

facility.

Flood Control Works

Facilities constructed for the purpose of eliminating or reducing the 

threat of flood, e.g., levees, floodwalls, flood control channels and dams 

designed for flood control.

Force Account

Labor performed by the applicant’s employees and applicant-owned 

equipment, rather than by a contractor.

FEMA-State Agreement 

A formal legal document stating the understandings, commitments, 

and binding conditions for assistance applicable as the result of a major 

disaster or emergency declared by the President.

Grantee 

The State, in most cases, acts as the grantee for the Public Assistance 

Program. The grantee is accountable for the use of the funds provided. 

The terms “grantee” and “State” are often used interchangeably.

Hazard Mitigation

Any cost-effective action taken to prevent or reduce the threat of future 

damage to a facility from a disaster event.
G-4 Appendix G: Glossary of Terms

Immediate Needs Funding 

An advance of grant funds for emergency work that must be performed 

immediately and paid for within the first 60 days after the major disaster 

declaration. The amount of funding is normally up to 50 percent of the 

Federal share of emergency costs.

Improved Property

A structure, facility, or item of equipment that was built, constructed, or 

manufactured. It includes improved and maintained natural features. 

Land used for agricultural purposes is not improved property.

Incident Period

The time interval during which the disaster-causing incident occurs. 

No Federal assistance under the Stafford Act shall be approved unless 

the damage or hardship to be alleviated resulted from the disastercausing incident which took place during the incident period or was in 

anticipation of that incident. 

Kickoff Meeting

The initial meeting of an applicant, the State PA Representative 

(Applicant Liaison), and the FEMA PAC Crew Leader. At this 

working session, the applicant provides a list of damages and receives 

comprehensive information about the Public Assistance Program and 

detailed guidance for the applicant’s specific circumstances. This is the 

first step in establishing a partnership among FEMA, the State, and the 

applicant and is designed to focus on the specific needs of the applicant. 

The meeting focuses on the eligibility and documentation requirements 

that are most pertinent to the applicant. 

Large Project

An eligible project, either emergency or permanent work, that has a 

damage dollar value at or above the fiscal year threshold. The threshold 

is adjusted each fiscal year to account for inflation. Large project 

funding is based on documented actual costs.

Major Disaster

Any natural catastrophe (including any hurricane, tornado, storm, 

high water, wind driven water, tidal wave, tsunami, earthquake, volcanic 

eruption, landslide, mudslide, snowstorm, or drought), or, regardless 

of cause, any fire, flood, or explosion, in any part of the United States, 

which in the determination of the President causes damage of sufficient 

severity and magnitude to warrant major disaster assistance under the 

Stafford Act to supplement the efforts and available resources of States, 

local governments, and disaster relief organizations in alleviating the 

damage, loss, hardship, or suffering caused thereby.
Appendix G: Glossary of Terms G-5

Mutual Aid Agreement

An agreement between jurisdictions or agencies to provide services 

across boundaries in an emergency or major disaster. Such agreements 

usually provide for reciprocal services or direct payment for services. 

Obligated Funds

The funds FEMA makes available to the grantee for approved Public 

Assistance projects. The grantee is then required to make payment of the 

Federal share to the applicant as soon as practicable. 

Other Essential Governmental Service Facilities 

Private Nonprofit (PNP) museums, zoos, performing arts facilities, 

community arts centers, community centers, libraries, homeless shelters, 

senior citizen centers, rehabilitation facilities, mass transit facilities, 

shelter workshops and facilities which provide health and safety services 

of a governmental nature. All such facilities must be open to the 

general public.

PAC Crew Leader

A FEMA representative who works with the applicant to resolve disasterrelated needs and to ensure that the applicant’s projects are processed 

as efficiently and expeditiously as possible. The PAC Crew Leader 

ensures continuity of service throughout the delivery of the Public 

Assistance Program. 

Permanent Work

That work which is required to restore a facility, through repairs 

or replacement, to its pre-disaster design, function, and capacity in 

accordance with applicable codes and standards (Categories C 

through G).

Pre-application

An applicant’s official notification to FEMA of intent to apply for Public 

Assistance. The form provides general identifying information about 

the applicant. The terms “Pre-application” and “Request for Public 

Assistance” are often used interchangeably.

Preliminary Damage Assessment (PDA)

A survey performed to document the impact and magnitude of the 

disaster on individuals, families, businesses, and public property and to 

gather information for disaster management purposes. The information 

gathered is used to determine whether Federal assistance should 

be requested by the Governor and forms the basis for the disaster 

declaration request. 
G-6 Appendix G: Glossary of Terms

Private Nonprofit (PNP) Facilities

Educational, utility, irrigation, emergency, medical, rehabilitational, 

and temporary or permanent custodial care facilities and facilities on 

Indian reservations, as defined by the President. Other PNP facilities 

that provide essential services of a governmental nature are eligible and 

are listed in this Glossary of Terms under Other Essential Governmental 

Service Facilities.

Private Nonprofit (PNP) Organization 

Any non-governmental agency or entity that currently has either an 

effective ruling letter from the U.S. Internal Revenue Service granting 

tax exemption or satisfactory evidence from the State that the nonrevenue producing organization or entity is a nonprofit one organized 

or operating under State law.

Project Formulation

The process of identifying the eligible scope of work and estimating the 

costs associated with that scope of work for each applicant’s projects. 

Project Specialist

FEMA’s specialist who works directly with the applicant in assessing 

damage sites and in developing scopes of work and cost estimates. The 

FEMA Project Specialist will also identify the need for other specialists 

and work with the FEMA PAC Crew Leader in obtaining their services 

for projects.

Project Worksheet 

Form used to document the location, damage description and 

dimensions, scope of work, and cost estimate for a project. It is the basis 

for the grant. The terms “Project Worksheet” and “Subgrant Application” 

are often used interchangeably.

Public Assistance (PA)

Supplementary Federal assistance provided under the Stafford Act 

to State, local and Tribal governments or eligible PNPs to help them 

recover from Federally-declared major disasters and emergencies as 

quickly as possible.

Request for Public Assistance (RPA)

An applicant’s official notification to FEMA of intent to apply for Public 

Assistance. The form provides general identifying information about the 

applicant. The terms “Request for Public Assistance” and “Pre-application” 

are often used interchangeably.
Appendix G: Glossary of Terms G-7

Small Project

An eligible project, either emergency or permanent work, that has a 

damage dollar value below the fiscal year threshold. The threshold is 

adjusted each fiscal year to account for inflation. Small project funding is 

based on estimated costs if actual costs are not yet available.

Special Considerations

Factors that must be addressed before Federal PA grant money can 

be obligated to repair or restore damaged facilities. These factors 

include, but are not limited to, general and flood insurance, historic 

preservation, environmental protection, and hazard mitigation.

Stafford Act

Robert T. Stafford Major Disaster Relief and Emergency Assistance Act 

(Stafford Act), PL 100-707, signed into law November 23, 1988; the 

1988 law amended the Major Disaster Relief Act of 1974, PL 93-288. 

This Act constitutes the statutory authority for most Federal major 

disaster response activities especially as they pertain to FEMA and FEMA 

programs.

State Administrative Plan

The State is required to develop a State Administrative Plan to 

administer the Public Assistance Program. The Plan should include the 

designation of responsibilities for State agencies and include staffing for 

the Public Assistance Program. An approved State Administrative Plan 

must be on file with FEMA before grants will be approved for any major 

disaster. The approved State Administrative Plan should be incorporated 

into the State’s emergency plan.

State Public Assistance (PA) Representative

An applicant’s point of contact, designated by the State, who will 

help the applicant obtain FEMA assistance. The terms “State PA 

Representative” and “Applicant Liaison” are often used interchangeably.

Subgrantee

A State agency, local government, Indian Tribe, authorized tribal 

organization, Alaska Native village or organization, and certain Private 

Nonprofit organizations that submit a request for disaster assistance 

under the Presidentially declared major disaster or emergency. The 

terms “subgrantee” and “applicant” are often used interchangeably.
G-8 Appendix G: Glossary of Terms

Subgrant Application

Form used to document the location, damage description and 

dimensions, scope of work, and cost estimate for a project. It is the basis 

for the grant. The terms “Subgrant Application” and “Project Worksheet” 

are often used interchangeably.

Technical Specialist

FEMA’s Technical Specialist is a resource for the applicant. A Technical 

Specialist has a defined area of expertise, such as debris removal and 

disposal, roads and bridges, infrastructure, environmental and historic 

preservation compliance, insurance, cost estimating, or floodplain 

management.
Appendix H: FEMA Policies and Publications H-1

APPENDIX H

FEMA Policies and 

Publications

9510 Public Assistance Program Administration and Appeals

9510.1 Coordination Requirements for Public Assistance and Fire 

Management Assistance Program Documentation and 

Appendix

9520 Public Assistance Eligibility

9521.1 Community Center Eligibility

9521.2 Private Nonprofit Museum Eligibility

9521.3 Private Nonprofit (PNP) Facility Eligibility

9521.4 Administering American Indian and Alaska Native Tribal 

Government Funding

9521.5 Eligibility of Charter Schools

9523.1 Snow Assistance Policy

9523.2 Eligibility of Building Inspections in a Post-Disaster 

Environment

9523.3 Provision of Temporary Relocation Facilities

9523.4 Demolition of Private Structures

9523.6 Mutual Aid Agreements for Public Assistance and Fire 

Management Assistance

9523.7 Public Assistance for Public Housing Facilities

9523.8 Mission Assignments for ESF #10

9523.9 100% Funding for Direct Federal Assistance and Grant 

Assistance

9523.10 Eligibility of Vector Control (Mosquito Abatement)

9523.11 Hazardous Stump Extraction and Removal Eligibility

9523.12 Debris Operations – Hand-Loaded Trucks and Trailers

9523.13 Debris Removal from Private Property

9523.15 Eligible Costs Related to Evacuations and Sheltering
H-2 Appendix H: FEMA Policies and Publications

9523.17 Emergency Assistance for Human Influenza Pandemic

9523.18 Host-State Evacuation and Sheltering Reimbursement

9523.19 Eligible Costs Related to Pet Evacuations and Sheltering

9523.20 Purchase and Distribution of Ice

9524.1 Welded Steel Moment Frame 

9524.2 Landslides and Slope Failures

9524.3 Rehabilitation Assistance for Levees and other Flood Control 

Works Memo updating Policy 9524.3 – August 5, 2009

9524.4 Repair vs. Replacement of a Facility under 44 CFR 

§206.226(f) (The 50% Rule)

9524.5 Trees, Shrubs and Other Plantings Associated with Facilities

9524.6 Collections and Individual Object Eligibility

9524.7 Interim Welded Steel Moment Frame Policy for the Nisqually 

Earthquake Disaster

9524.8 Eligibility for Permanent Repair and Replacement of Roads 

on Tribal Lands

9524.9 Replacement of Animals Associated with Eligible Facilities

9524.10 Replacement of Equipment, Vehicles, and Supplies

9525.1 Post Disaster Property Tax Assessment

9525.2 Donated Resources

9525.3 Duplication of Benefits – Non-Government Funds

9525.4 Emergency Medical Care and Medical Evacuations

9525.5 Americans with Disabilities Act (ADA) Access Requirements

9525.6 Project Supervision and Management Costs of Subgrantees

9525.7 Labor Costs – Emergency Work

9525.8 Damage to Applicant Owned Equipment

9525.9 Section 324 Management Costs and Direct Administrative 

Costs

9525.11 Payment of Contractors for Grant Management Tasks

9525.12 Disposition of Equipment, Supplies and Salvageable Materials

9525.13 Alternate Projects

9525.14 Public Assistance Grantee Administrative Costs

9525.15 Telecommunications Support Lines for States

9525.16 Research-related Equipment and Furnishings
Appendix H: FEMA Policies and Publications H-3

9526.1 Hazard Mitigation Funding Under Section 406 (Stafford Act)

9527.1 Seismic Safety – New Construction

9527.4 Construction Codes and Standards

9530 Public Assistance Insurance Requirements

9530.1 Retroactive Application of a Letter of Map Amendment 

(LOMA) or Letter of Map Revision (LOMR) to Public 

Assistance Grants

9550 Fire Suppression Assistance

9550.3 Interim Policy on Fire Suppression Assistance

9560 Compliance with Environmental, Historic, Cultural 

. . Initiatives, Other Laws

9560.1 Environmental Policy Memoranda

9560.3 Programmatic Agreement – Historic Review

9570 Standard Operating Procedures

9570.2 Standard Operating Procedure – Public Assistance 

Coordinator

9570.4 Standard Operating Procedure – Kickoff Meeting

9570.5 Standard Operating Procedure – Project Formulation

9570.6 Standard Operating Procedure – Validation of Small Projects

9570.7 Standard Operating Procedure – Immediate Needs Funding

9570.8 Standard Operating Procedure – Cost Estimating Format for 

Large Projects

9570.9 Standard Operating Procedure – Historic Review

9580 Job Aids and Fact Sheets

9580.2 Fact Sheet: Insurance Responsibilities for Field Personnel

9580.3 Fact Sheet: Insurance Considerations for Applicants

9580.4 Fact Sheet: Debris Operations: Clarification

9580.5 Fact Sheet: Elements of a Project Worksheet

9580.6 Fact Sheet: Electric Utility Repair (Public and Private 

Nonprofit)

9580.8 Fact Sheet: Eligible Sand Replacement on Public Beaches

9580.100 Fact Sheet: Mold Remediation
H-4 Appendix H: FEMA Policies and Publications

9580.101 Fact Sheet: 2006 Special Community Disaster Loan Program

9580.102 Fact Sheet: Relocation and Permanent Relocation Fact Sheet 

Clarification Memorandum 

9580.103 Fact Sheet: GSA Disaster Recovery Purchasing Program

9580.104 Fact Sheet: Public Assistance for Ambulance Services

9580.201 Fact Sheet: Debris Removal – Applicant’s Contracting 

Checklist

9580.202 Fact Sheet: Debris Removal – Authorities of Federal Agencies

9580.203 Fact Sheet: Debris Monitoring

9580.204 Fact Sheet: Documenting and Validating Hazardous Trees, 

Limbs, and Stumps

Other FEMA Publications

FEMA 321 Public Assistance Policy Digest

FEMA 322 Public Assistance Guide 

FEMA 323 Public Assistance Applicant Handbook

FEMA 325 Public Assistance Debris Management Guide

FEMA 328 Public Assistance Program Brochure

FEMA 329S El Programa Asistencia Publica

Other Sources

Robert T. Stafford Disaster Relief and Emergency Assistance Act, as 

amended 

Title 44 of the Code of Federal Regulations

These publications are available on the FEMA Web site 

(www.fema.gov/government/grant/pa/).
Index I-1

Index

A

Administrative costs.............................................................................. 18, H-2

Alternate projects..........................................23, 26–28, 54, C-2, D-1, E-3, H-2

Appeals .................................................................................. 25, 30, 50–51, 63

Applicants’ Briefing ................................................ 3, 7–9, 18, 21, 32, 62, G-1

Applicant Liaison ............................................................................3, G-1, G-7

Audits......................................................................... 18, 32–33, 53, 58–59, 63

B

Bridges...........................................................................(See Roads and Bridges)

Buildings and Equipment (Category E).................................... 15–16, 38, 49

C

Case Management File (CMF) ............................................................... 9, G-1

Categories of work ................................................................ 11, 13–17, 36, 38

Category A.......................................................13–14, 16, 38, 49, A-3–A-4, G-3

Category B.................................................................... 14–15, 38, 49, A-3–A-4

Category C......................................................................................... 15, 38, 49

Category D......................................................................................... 15, 38, 49

Category E ................................................................................... 15–16, 38, 49

Category F ......................................................................................... 16, 38, 49

Category G................................................................................... 16–17, 38, 49

Category H .................................................................................................... 17

Closeout .........................................................................3, 7–8, 33, 57–59, G-2

Community Development Districts.............................................................A-5

Completion deadlines ................................................................(see Deadlines)

Contracts ........................................................................... 1, 10, 36, 43–45, 54

Cost estimates.....................................................4, 18, 22, 35, 41–47, G-2, G-6

Cost Estimating Format (CEF)............................................... 46–47, G-2, H-3

Cost overrun................................................................................ 30, 50, 53, 58

Cost share .......................................................................................... 1, 2, 6, 27

Critical PNP services............................................................................ A-3–A-4

Custodial Care Facilities (PNP) .......................................................... A-1–A-6
I-2 Index

D

Damage description and dimensions ...............................35, 39–40, G-6, G-8

Damaged facility....................................................... 1, 23–28, 38–41, C-1, E-1

Deadlines............................................ 10–11, 24, 25, 30, 47-48, 49–50, 61–63 

Debris Removal (Category A) ................7–8, 10–11, 13–14, 38, 49, G-2, H-1,

H-3, H-4

Declaration...................................................3, 6, 8, 17–18, 37, 58, 61–62, G-2

Department of Commerce ............................................................................. 2

Department of Housing and Urban Development (HUD) ................... vii, 2

Department of Interior................................................................................... 2

Department of Transportation....................................................................... 2

Direct Federal Assistance.................................................................... 2, 6, H-1

Documentation ................ 8, 11, 18–19, 21–22, 30, 32–33, 39, 43, 47, 53–56,

57–59, 61, B-2, B-4, C-3, D-2, E-2–E-3, G-1, G-4

Donations .......................................................................................... 1, 54, H-2

Duplication of benefits................................................................ B-1–B-4, H-2

E

Educational facilities (PNP)................................................................ A-1–A-6

Eligibility................3, 6–7, 13–19, 21, 24, 27, 30–31, 36, 40–41, A-1–A-6, G-4

Emergency................................................................. 1, 2, 5, 8, 10, 19, 49, G-2

Emergency facilities (PNP) ................................................................. A-1–A-6

Emergency Protective Measures (Category B)...6, 10–11, 14–15, 38, 49, G-2

Emergency work...................................................8, 10–11, 12–15, 36, 49, G-2

Environmental compliance.................................... 9, 41, 47, 62, E-1–E3, H-3

Environmental justice..................................................................................E-1

Equipment................ 1, 15–16, 26, 38, 42–47, 54, 56, A-4, B-1, B-3, F-1, F-19,

G-3, H-2

Equipment rates............................................................................................ 43

Expedited Payments ................................................................. 11, 22, 62, G-3

F

Federal Highway Administration (FHWA).............................................. 2, 15

Federal share........................................2, 6–7, 17, 25, 27, 29–30, 32, G-3–G-5

FEMA forms......................................................................... 4, 53, 55, F-1–F-20

FEMA-State Agreement .......................................................................... 6, G-3 

FEMA Web site ...................................i, 9, 13, 17, 43, 48, 56, 61, E-3, F-1, H-4

Fire Management (Category H) .......................................................... 17, H-1

Flood insurance ......................................................... 26, 54, B-1–B4, E-2, G-7

Force account equipment ......................................... 1, 54, 56, F-1, F-19, G-2, 

Force account labor ........................................ 1, 36, 41, 54, 56, F-1, F-15, G-2
Index I-3

G

Gated communities.............................................(see Homeowners’ associations)

Grass ............................................................................................................. 17

H

Hazard mitigation................ 3–4, 8, 13, 21–23, 25–26, 28, 31, 33, 35, 41, 47,

54, 62, B-3, C-1–C-3, E-3, F-1, F-3, G-3

Historic Preservation ............... 4, 8, 21–22, 25, 27–28, 31, 33, 35, 41, 47, 62,

C-2, D-1–D-2, E-1, F-1, F-14, G-7, H-3

Homeowners’ associations ..........................................................................A-5

I

Immediate Needs Funding................................................. 10–11, 22, 62, G-4

Improved project ........................................................23–25, 41, C-2, D-1, E-3

Indian Tribal government ....................................................7, 9, 17, H-1, H-2

Insurance................ 4, 8, 10–11, 21–22, 26, 31, 33, 35, 41–43, 46–47, 50, 54,

62, B-1–B-4, C-2, E-2, H-3

Irrigation ....................................................................................................... 15

Irrigation facilities (PNP)..................................................................... A1–A-6

K

Kickoff Meeting............................................. 3, 7, 21–22, 30, 47, 62, G-4, H-3

L

Labor ....................................1, 36, 41–43, 45, 54, 56, A-4, F-1, F-15, G-3, H-2

Large projects...................................29, 32–33, 42, 46–48, 53, 57–58, 63, G-4

Legal responsibility ............................................................................6, 14, A-5

Location..................... 22–23, 28, 35–36, 39, 53, 62, C-2, D-1, E-1–3, G-6, G-8

M

Major disaster ...............................................1–2, 5, 10, 17–19, 37, 49, 62, G-4

Management costs........................................................................... 17–18, H-2

Materials.................................................... 1, 10, 42–45, 54, 56, F-1, F-16, H-2

Medical facilities (PNP)....................................................................... A-1–A-6

Mission Assignments........................................................................... 2, 6, H-1

Mitigation ......................................................................(see Hazard mitigation)

Mutual Aid Agreements............................................................ 1, 55, G-5, H-1
I-4 Index

N

National Flood Insurance Program (NFIP) ................................. 26, B-1–B-4

Natural Resources Conservation Service (NRCS) .................................. 2, 15

Non-critical PNP services.............................................................................A-4

O

Obligated funds ................................................................................ 3, 33, G-5

P

PAC Crew Leader ......................vii, 4, 7, 13, 21, 24, 28, 30–32, 36–37, 50, 61, 

B-2, B-4, C-1–C2, D-2, E-2, G-1, G-5

PA Group Supervisor ...................................................................................... 4

Parks, Recreational Areas, and Other Facilities (Category G)....... 16, 38, 49

Permanent work........................3, 10–11, 15–17, 36, 49, 58, 62, A-4–A-5, G-5

Pre-application...................................3, 7, 9–11, 18, 22, 62, F-1, F-2, G-5, G-6

Pre-disaster design ........................ 15, 23, 25, 27, 40–41, C-1–2, E-1, E-3, G-5

Preliminary Damage Assessment (PDA) ......................2, 5–6, 10–11, 61, G-5

Private nonprofit (PNP) .............3, 7–8, 17, A-1–A-6, F-1, F-13, G-5, G-6, H-1

Procurement ............................................................................... (see Contracts)

Progress reports ............................................................................................ 57

Project Specialist......................................4, 16, 21, 30–32, 35, 37–38, 62, G-6

Project Worksheet (PW) .......................................... (see Subgrant Application)

Public Entities ................................................................................................. 7

R

Reasonable cost....................................................................... 1, 31, 41–46, 61

Record keeping................................................................. 8, 53–55, 57–59, 61 

Repair ........... 5–6, 15–17, 23–28, 40–41, 47, A-3, B-1, C-1–C-3, D-1, E-1, H-2

Repair vs. Replacement (50 Percent Rule) ........................................... 23–24

Replacement .....................................15–17, 23–25, 40–41, A-3, C-2, G-5, H-2

Request for Public Assistance (RPA) ................................(see Pre-application)

Roads and Bridges (Category C) ..................................................... 15, 38, 49

S

Schools........................................................................(see Educational facilities)

Scope of Work .................22, 25, 29–33, 35, 39–41, 46–48, 49–51, 57–59, 62,

B-4, C-2, E-3, G-8

Small Business Administration (SBA) ................................................ A-4, A-6

Small project ................29–32, 36, 42, 46, 48, 50, 53, 57–58, 62–63, D-2, G-7

Small project threshold .......................................................................... 29, 46

Small project validation.................................................. 30–32, F-1, F-11, H-3
Index I-5

Special considerations........... 3, 8, 21, 30–33, 35–36, 41, 47–48, 62, E-2, F-1, 

F-12, G-7

Special Flood Hazard Area (SFHA).................................................... B-1–B-2

State PA Representative .................................................3–4, 5, 9, 32, G-1, G-7

Structures .................................................................................13–16, A-1, D-1

Subgrant Application......................3, 7, 10–11, 18–19, 28–33, 35–41, 46–48,

49–51, 53–55, 62, A-4, B-1–B-3, B-4, C-1–C-2, D-2, E-2–E-3, F-1, F-4, 

G-6, G-8, H-3

Supplies ....................................................................................15, 43, A-1, H-2

T

Technical Specialist.................... 4, 21, 35, 41, 62, B-1–B-4, C-2, D-2, E-2, G-8

Time and materials contracts....................................................................... 45

Time extensions.......................................................................... (see deadlines)

Time limits....................................................................................(see deadlines)

Trees .......................................................................................13, 17, H-2, H-4

Tribal government .............................................(see Indian Tribal government)

U

U.S. Army Corps of Engineers (USACE) ......................................... viii, 2, 15

Utilities (Category F) ................................................................ 16, 38, 49, H-3

Utility facilities (PNP).......................................................................... A-1–A-6

V

Validation ...............................................................(see Small project validation)

Volunteers ..................................................................................(see Donations)

W

Water Control Facilities (Category D).............................. 15, 38, 49, A-2–A-3


FEMA P-323

Catalog No. 10098-1

FEMA

U. S. DEPARTMENT OF

HOMELAND SECURITY

U. S. DEPARTMENT OF

HOMELAND SECURITY